Resource Management Plan Guidebook Liljegren Tom Lincoln ... Executive Summary Chapter I –...

Mission Statements

The mission of the Department of the Interior is to protect and provideaccess to our Nation’s natural and cultural heritage and honor our trust

responsibilities to Indian tribes and our commitments to island communities.

The mission of the Bureau of Reclamation is to manage, develop, andprotect water and related resources in a environmentally and economically

sound manner in the interest of the American public.

Resource Management Plan GuidebookResource Management Plan Guidebook

P l a n n i n g f o r t h e F u t u r e

Department of the InteriorBureau of Reclamation

February 2003

Acknowledgments

This Resource Management Plan Guidebook (Guidebook) was prepared by the Bureau of Reclamation’s(Reclamation) Technical Service Center (TSC) under the direction and guidance of the Office ofPolicy. The Office of Policy and the TSC wish to thank the many individuals throughout the agencywho contributed to the preparation of this Guidebook. During this process, an enormous amount oftime was spent by Reclamation staff in reviewing drafts, providing comments, rewriting sections, andattending meetings. It was truly a team effort. The preparers and major contributors were:

Preparers

Name Office Contribution

Darrell WelchCarol BerrySharon LeffelCharlie BrownTony Rozales

Technical Service CenterTechnical Service CenterTechnical Service CenterTechnical Service CenterTechnical Service Center

Primary author/team managementTechnical writerEditorial AssistantGraphicsGraphics

Major contributors

Name Office Title and/or discipline

Mike ArmbrusterSusan BlackDavid BradleyDarrell CauleyBruce BrownKip GjerdeDel HolzJim JensenJerry JacobsChuck JohnsonMike KnippsLee LaurenceJoe LiebhauserFred LiljegrenTom LincolnLilas LindellVernon LovejoyBill MartinKris MillsTara MobergChris PfaffAlan SchroederRusty SchusterCarolyn Burpee-StoneDonald TreasureJudith TroastBasia Trout

Technical Service CenterTechnical Service CenterPacific Northwest Regional OfficeOffice of Policy – DenverOffice of Policy – Washington D.C.Great Plains Regional OfficeTechnical Service CenterProvo Area OfficeGreat Plains Regional OfficeMid-Pacific Regional OfficeOffice of Policy – DenverMid-Pacific Regional OfficeLower Colorado Regional OfficeUpper Colorado Regional OfficeOffice of Policy – DenverOffice of Policy – DenverOffice of Policy – DenverLower Colorado Regional OfficeLower Colorado Regional OfficeEastern Colorado Area OfficeOffice of Policy – DenverWestern Colorado Area OfficeOffice of Policy – DenverPacific Northwest Regional OfficeOffice of Policy – DenverOffice of Policy – Washington, D.C.Northern California Area Office

Chief, Ecological Planning and AssessmentSocial Science Analyst – Indian Trust AssetsRegional Planning CoordinatorManager, Environmental Planning and CoordinationPolicy Analyst – RecreationNatural Resource SpecialistManager, Resource Management and PlanningLandscape ArchitectNatural Resource SpecialistChief, Land ResourcesOffice of Policy Planning Program ManagerResource Management Projects OfficerRegional Realty OfficerOutdoor Recreation PlannerFederal Preservation OfficerPolicy AnalystPolicy Analyst – RecreationNatural Resource SpecialistManager, Program ManagementNatural Resource SpecialistHistorianNatural Resource SpecialistManager, Lands, Recreation, and CulturalResourcesRegional Resource Management Plan CoordinatorPolicy Analyst – NEPA/ESAPolicy Analyst – EnvironmentalNatural Resource Specialist

Acronyms and Abbreviations

BA biological assessmentBIA Bureau of Indian AffairsBLM Bureau of Land ManagementBO biological opinion

CE categorical exclusionCEQ Council on Environmental QualityCFR Code of Federal RegulationsCIS Customer Information System

DM Departmental ManualDOI Department of the Interior

EA environmental assessmentEIS environmental impact statementE.O. Executive orderEPA Environmental Protection AgencyESA Endangered Species Act

FACA Federal Advisory Committee Act, Public Law 92-463FLPMA Federal Land Policy and Management Act of 1976FONSI finding of no significant impactFS U.S. Forest ServiceFWCA Fish and Wildlife Coordination Act of 1958FWS U.S. Fish and Wildlife Service

GIS geographic information systemGPO Government Printing Office

ID interdisciplinaryIndian American IndianITAs Indian Trust Assets

MATS Multi-Attribute Tradeoff SystemMOA Memorandum of AgreementMOU Memorandum of Understanding

NAGPRA Native American Graves Protection and Repatriation ActNational Register National Register of Historic PlacesNEPA National Environmental Policy Act

NHPA National Historic Preservation ActNOAA Fisheries National Oceanic and Atmospheric Administration Fisheries

OHV off-highway vehicleO&M operation and maintenanceOMB Office of Management and Budget

P&Gs Economic and Environmental Principles and Guidelines for Water and Related Land Resources Implementation Studies

PIP Public Involvement PlanP.L. Public LawProject Reclamation Project

Reclamation Bureau of ReclamationRMP Resource Management PlanRNAs research natural areasROS recreation opportunity spectrum

SHPO State Historic Preservation OfficerSOW statement of work

Task Force Department of the Interior Task ForceTCPs traditional cultural propertiesTSC Technical Service Center, Bureau of Reclamation, Denver,

Colorado

WROS Water Recreation Opportunity Spectrum

Contents

Page

Executive Summary

Chapter I – OverviewIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-1

Reclamation Goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-1Departmental Goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-2Reclamation Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-3Entity Responsible for Preparing a Resource Management Plan . . . . . . . . . . . . . . . . . . . . I-4

Other Federal Entities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-4Reclamation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-4

Authorization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-5Supplemental Guidance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-6Purpose and Benefit . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-7Organization of the Resource Management Plan Guidebook . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-9

Chapter II – AdministrationIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-1Responsibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-1Phase I Preliminary Resource Management Plan Administrative Actions . . . . . . . . . . . . . . . II-2

1. Defining Management Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-22. Process for Prioritizing Management Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-33. Budgeting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-44. NEPA Compliance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-55. Preparing a Statement of Work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-66. Contract Award . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-87. Office of Management and Budget Clearance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-88. Establishing a Team Leader and Interdisciplinary Team . . . . . . . . . . . . . . . . . . . . . . . II-9

Phase II Administrative Actions Required During the Preparation of a Resource Management Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-11

1. Preparation of Work Plans and Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-122. Preparation of a Public Involvement Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-133. Endangered Species Act, Fish and Wildlife Coordination Act, and

Migratory Bird Treaty Act Consultations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-134. National Historic Preservation Act Consultation . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-145. Indian Trust Assets Consultation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-156. Indian Sacred Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-177. Native American Graves Protection and Repatriation Act . . . . . . . . . . . . . . . . . . . . . II-178. Federal Advisory Committee Act Initiation and Documentation . . . . . . . . . . . . . . . II-179. Preparation and Maintenance of an Active Mailing List . . . . . . . . . . . . . . . . . . . . . . . II-18

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Chapter II – Administration (continued)10. Preparation of Public Notices, Newsletters, or Updates . . . . . . . . . . . . . . . . . . . . . II-1911. Printing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-19

Phase III Post-Administrative Actions Required After Resource Management Plan Completion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-19

1. Plan Distribution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-202. Integration with Other Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-203. Resource Management Plan Implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-214. Resource Management Plan Monitoring Program . . . . . . . . . . . . . . . . . . . . . . . . . . . II-215. Resource Management Plan Adjustments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-226. Administrative Record . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-22

Chapter III – Planning ProcessIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-1Level of Planning Effort . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-1Planning Process Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-3

1. Identification of Issues, Opportunities, and Constraints . . . . . . . . . . . . . . . . . . . . . . III-4Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-4Opportunities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-4Constraints . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-5

2. Development of Planning Criteria . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-53. Inventory Data and Information Collection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-64. Analysis of Resources and Management Framework . . . . . . . . . . . . . . . . . . . . . . . . . III-75. Formulation of Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-86. Evaluation of Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-97. Selection of Preferred Alternative(s) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-108. Preparation of a Final Resource Management Plan and NEPA

Document . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-119. Implementation and Monitoring of a Resource Management Plan . . . . . . . . . . . . III-12

10. Amendments and Revisions to a Resource Management Plan . . . . . . . . . . . . . . . . III-15NEPA Compliance Concurrent with the Planning Process . . . . . . . . . . . . . . . . . . . . . . . . . III-15

Chapter IV – Components of a Resource Management PlanIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-1Standard Format . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-2Stand Format Components Included in a Resource Management Plan . . . . . . . . . . . . . . . . IV-3

1. Cover . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-32. Inside Cover . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-43. RMP Document Guide (Optional) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-64. Finding of No Significant Impact (Optional) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-6

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Chapter IV – Components of a Resource Management Plan (continued)5. Title Page . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-66. Inside Title Page . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-67. Preface (Optional) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-78. Executive Summary (Optional) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-79. Abbreviations and Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-710. Table of Contents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-911. Essential Components Included in a Resource Management Plan . . . . . . . . . . . . . IV-9

A. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-10B. Purpose Statement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-10C. Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-10D. Organization and Scope of an RMP Document . . . . . . . . . . . . . . . . . . . . . . IV-11E. Project History . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-11F. Location/Setting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-12G. Overview of Public Involvement Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-12H. Overview of Consultation Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-12I. Management Framework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-12J. Planning Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-13K. Opportunities and Constraints . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-13L. Issues and Issue Categories . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-14M. Existing Resource Inventory/Existing Condition . . . . . . . . . . . . . . . . . . . . IV-15N. Goals and Objectives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-16O. Desired Future Condition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-17P. Management Action(s)/Direction(s) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-17Q. Implementation Procedures (Monitoring, Plan Revision or

Amendment, and Standards and Guides) . . . . . . . . . . . . . . . . . . . . . . . . . IV-18Monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-18Plan Revision or Amendment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-19Standards/Guides . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-19

Water Resources, Quality, and Use . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-20Recreation-Related . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-20Fish, Wildlife, and Vegetation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-20Lands and Land-Related . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-21Other . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-21

12. List of Preparers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-2213. References/Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-2314. Glossary of Terms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-2415. Attachments/Appendices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-24

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Chapter V – Supplemental Resource Management Plan InformationIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-1Interdisciplinary Team Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-1Graphics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-3GIS Resource Mapping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-5

Manipulation and Analysis with GIS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-11Photography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-11Photo Points Around the Management Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-16

Glossary

FiguresFigures

Figure Page

II-1 Section 106 regulations flowchart . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-16III-1 Planning process flowchart . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-2III-2 Working group process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-14III-3 Planning schedule process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-17III-4 CE process flowchart (NEPA Handbook) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-18III-5 EA process flowchart (NEPA Handbook) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-20III-6 EIS process flowchart (NEPA Handbook) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III-21

AttachmentsAttachments

Attachment

A Environmental Laws, Regulations, and Executive OrdersB Multi-Attribute Tradeoff System (MATS) Priority SystemC Diagrammatic Sketch of Prioritization ProcessD Examples of a Statement of WorkE Work Plan QuestionsF Example of a Work PlanG Example of a Typical ScheduleH Example of a Public Involvement PlanI The Public Meeting Survival Guide (Fish and Wildlife Service)J Series of Newsletters from Heron Reservoir, New MexicoK Example of Form 7-2525

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Attachment

L Resource Management Plan Process OutlineM Part I – Examples of RMP/EA Goals and Objectives from Canyon Ferry

Reservoir RMP/EA; Part II – Examples of RMP Goals and Objectives from Agate Lake RMP

N OpportunitiesO Possible Planning CriteriaP Part I – Examples of a Table of Contents for RMP Documents from

Agate Lake, Ririe Reservoir, and Scofield Reservoir; Part II – Example of a Table of Contents for an Integrated RMP/NEPA Document from Canyon Ferry RMP/EA

Q Document GuideR Example of a Preface from an Integrated RMP/NEPA DocumentS Examples of Geographic Information System MapsT Examples of Resources and Resource Information that Should be

Addressed in an RMPU Example of a Desired Future Condition Statement from Starvation

Reservoir (UC Region)V General Guidance on Developing Management Actions that may be

Appropriate to Include in an RMPW Monitoring Review Forms

1 There may be small scattered tracts of land under the jurisdiction of Reclamation that may not requirethe completion of an RMP. When Reclamation Project use or size, location, and access of a tract of land does not lenditself to resource allocations or multiple use, expenditure of funds to develop an RMP may be unwarranted.

ChapterChapter

II OverviewOverview

Introduction

The Bureau of Reclamation’s (Reclamation) mission statement declares that it is “to manage,develop, and protect water and related resources in an environmentally and economicallysound manner in the interest of the American public.” Planning, through ResourceManagement Plans (RMPs), provides specific direction for Reclamation to accomplish itsmission at water resource development projects. Reclamation’s 2000 – 2005 Strategic Planindicates it will develop, monitor, and update RMPs for lands directly managed byReclamation and for lands cooperatively managed with another Federal or non-Federalentity.1

The guidance provided herein is discretionary, and the attachments are to be considered onlyas reference materials; however, the guidance provided will result in an RMP document thatcan effectively assist Reclamation in planning, decisionmaking, and implementing actions andactivities affecting the resources under its jurisdiction. Because resource situations/issuesdiffer greatly among the different Reclamation regions and from State to State, creativity andflexibility are allowed in preparing RMP documents so that they can address specific issuesthat meet local public expectations and address specific resource conditions. This ResourceManagement Plan Guidebook is intended to be a dynamic document which will be updated,as necessary.

The RMP is to chart the desired future condition for the area in question—the resultantbiological, physical, and social condition that Reclamation desires to see once all the RMPmanagement actions have been implemented. The RMP document should be sufficientlydetailed to direct future development, but it should be flexible enough to allow resolution ofday-to-day problems.

Reclamation Goals

The demand for Reclamation lands and water is increasing at a phenomenal rate. Recreation use is currently expanding by an estimated 1.2 million visitors per year atReclamation reservoirs. Because there is increasing competition for the use of Federal lands by a variety of users (e.g., recreationists, power companies, oil and gas companies,

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2 A “management area” can be described as a geographic or study area that can be effectively managed as a relativelyindependent unit. Project and management areas are not necessarily synonymous because there can be severalmanagement areas within a project. A management area may be a reservoir area, wildlife area, or canal, or an area that hassimilar problems or issues.

and special interest groups), RMPs are a valuable tool that will help Reclamation makeinformed decisions affecting competing uses of its lands. In addition, the overall objectivesfor completing an RMP should be consistent with the objectives identified in Reclamation's2000 – 2005 Strategic Plan, which include the following:

P Manage, develop, and protect water and related resources to meet the needs of currentand future generations

P Operate, maintain, and rehabilitate facilities safely, reliably, and efficiently to provideReclamation Project (Project) benefits

P Advance Reclamation's organizational effectiveness

An RMP provides management direction consistent with authorized Project purposes while,at the same time, recognizing the rights and interests of existing contracts, legislation, andother entities concerning an identified land area that is under the jurisdiction of Reclamation. An RMP identifies measures necessary to achieve a desired future condition of the resourceswithin a management area2 covered by the RMP. Management direction is set forth in theform of goals, objectives, standards, and guidelines. These, in turn, set the stage formanagement actions, activities, and uses that affect management frameworks andpartnerships, land management, and water, recreation, visual, natural, and cultural resources. The management direction could be general in nature to the management area (area-wide) orunique to a portion of the management area (site specific). Monitoring and evaluation of anRMP are intended to ensure conformance and good stewardship.

Departmental Goals

The Department of the Interior (DOI) has developed broad goals that provide a framework forbureaus within the department. These goals can be found in Reclamation’s 2000 – 2005Strategic Plan. RMPs provide the means to achieve all or part of the following goals:

P Provide recreational opportunities and adequate recreation facilities for America

P Protect the environment and preserve the Nation's natural and cultural resources

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3 The Worldwide Web address for the 2000 – 2005 Strategic Plan is <http://www.usbr.gov/gpra/ strategicplan2000-2005.pdf>.

4 Report of the Budget Formulation Task Force on Resource Management Planning, DOI, November 3, 1992.

P Manage natural resources for a healthy environment and strong economy

P Meet responsibilities to Native Americans

Reclamation Strategy

Reclamation's 2000 – 2005 Strategic Plan provides overall direction for resource manage-ment activities.3 This guidebook provides overall direction for preparing RMPs that addressthe major objectives of the 2000 – 2005 Strategic Plan. Strategic Plans are continually beingupdated and modified; therefore, users of this guidebook should visit the Strategic Plan Website periodically to determine if Reclamation’s and/or DOI’s strategies and priorities havechanged.

In 1992, a DOI Task Force (Task Force) was organized to gather information about theresource management activities of the land and resources management bureaus within thedepartment and to recommend ways that the bureaus could more efficiently and effectively accomplish planning activities.4 The Task Force stated that “Resource management is integral to proper stewardship of the lands and resources the DOI manages because it isthrough this dynamic planning process that land use decisions are made.”

In response to the Task Force report recommendations, Reclamation identified sevenstrategies for managing land resources. The strategies developed are to:

P Responsibly manage Reclamation lands, stressing a balance of resource develop-ment, public recreation, and protection of natural and cultural resources andenvironmental values

P Make Reclamation lands and facilities accessible for persons with disabilities

P Complete the inventory and evaluation of cultural resources on Reclamation lands anddevelop a program to curate those resources through partnerships with museums,universities, and other entities

P Ensure that Reclamation lands are free of illegal drugs


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P Identify and resolve cases of unauthorized and disputed uses

P Continue the review of Reclamation land withdrawals in accordance with the FederalLand Policy and Management Act of 1976 (FLPMA)

P Complete land use agreements with those interested in utilizing real property underReclamation’s jurisdiction, ensuring that a fair cost recovery is received

Reclamation should continue to follow these strategies to manage lands and water under itsjurisdiction and authorities and is encouraged to develop RMPs for Reclamation lands and water using the guidelines developed in this guidebook.

Entity Responsible for Preparing a Resource Management Plan

Reclamation has the ultimate responsibility for ensuring that an RMP is prepared andimplemented for lands under its jurisdiction and for ensuring the protection of Project facilitiesand purposes. However, Reclamation has different levels of planning responsibility for landsunder its jurisdiction because its lands may be managed by a non-Federal Government entity oranother Federal entity. Regional Directors or their designee(s) have the discretion to determine ifReclamation or another entity should pay for and prepare an RMP for a particular managementarea. This decision should be made after consultation with the involved entity. An RMP shouldnot be initiated by Reclamation on lands managed by another Federal entity if such lands alreadyhave an appropriate planning document that has been prepared by the other entity.

Other Federal Entities.—When another Federal entity has jurisdiction of the lands andnatural resources on an authorized Project through a legislative transfer (not just as a managingpartner), that entity should be responsible for completing an RMP using its laws, rules,regulations, policy, and guidance (e.g., a National Recreation Area where the lands and resourceprograms are managed by either the National Park Service or U.S. Forest Service). Reclamationshould participate in this planning effort as a cooperating entity to ensure that the underlyingProject purposes are protected and its needs are met.

Reclamation.—When Reclamation is the sole manager, or when a non-Federal entity oranother Federal entity manages resources and/or land through a management agreement orcontract, Reclamation is ultimately responsible for completing the RMP. Reclamation’smanaging partners should cooperate in the preparation of the RMP pursuant to the terms,


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conditions, and procedures contained in their respective agreement or contract. This cooperationmay involve cost sharing by the non-Federal or other Federal managing partner.

Regardless of which entity has lead responsibility for completing the RMP, it is important thatresource management planning be done in cooperation with all entities, groups, and individualsthat have an interest in the area or that have something to contribute to the planning effort. Federal agencies, such as the U.S. Fish and Wildlife Service (FWS) and Bureau of LandManagement (BLM), and State entities, such as State game and fish and parks departments, mayhave inherent authorities to manage certain resources on Reclamation lands with or withoutagreements. Although these entities may not be responsible for initiating an RMP, they need tobe actively involved in the planning process.

During the RMP planning process, Reclamation should consider adjoining land areas that areunder the control of other entities or individuals. Close coordination should be implemented withthese entities or individuals to ensure that prescribed land uses are compatible. Although theseentities or individuals are not responsible for preparing or funding the RMP, they should beinvolved throughout the planning process.

Authorization

Reclamation’s authority to prepare RMPs is vested in the broad authority of the Reclamation Actof 1902 (Chapter 1093, 32 Stat. 388); the Reclamation Project Act of 1939 (Chapter 418, 53 Stat.1187); the Federal Water Project Recreation Act (Public Law [P.L.] 89-72, 79 Stat. 213); and,more specifically, in the Reclamation Recreation Management Act of 1992 (P.L. 102-575, Title 28[2805(c)(1)(A)]). The Reclamation Recreation Management Act authorized the preparation ofRMPs to “provide for the development, use, conservation, protection, enhancement, andmanagement of resources of Reclamation lands in a manner that is compatible with theauthorized purposes of the Reclamation Project associated with the Reclamation lands.” Inaddition, specific legislation for a Project may provide additional authorization to prepareplanning documents such as RMPs.

The management of federally owned lands is governed by a multitude of laws, Executive orders(E.O.), rules, regulations, policies, directives, and standards. Attachment A lists some of themore important laws and regulations that apply to lands under the jurisdiction of Reclamationand also identifies major elements of each. A summary of related environmental and culturalresource laws, rules, regulations, and instructions is also contained in Reclamation's NationalEnvironmental Policy Act Handbook (NEPA Handbook).


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Supplemental Guidance

P Land Resource Management Policies, Directives, and Standards sections of theReclamation Manual should be followed, as appropriate. In general, these policies,directives, and standards reaffirm that planning documents (RMPs) should be preparedand maintained, as needed, for all land and associated resources under Reclamation’sjurisdiction, including acquired, withdrawn, and leased lands. The scope and detail of anindividual planning document should be commensurate with the size and value of thelands and resources being managed; the current and projected problems, uses, andconflicts in the area; and public interest in the area. Planning documents are to bebudgeted for, scheduled, and prepared by area offices following priorities established bythe Area Manager. In cases in which an area is being managed by a non-Federal entity,the non-Federal entity will be expected to fully participate in the planning process and toimplement the results of the plan.

P The Decision Process Guidebook (<http://www.usbr.gov/Decision-Process>) can assistRMP team members in the preparation of RMPs. The decision process steps needed tosuccessfully reach a defensible decision are outlined in the guidebook. Because thedecision process steps are similar to the planning steps presented in this document, bothcan be used concurrently to ensure that “decisionmakers reach and implement aconfident, balanced decision—one capable of withstanding the scrutiny of multiplepublics and even the courts, if necessary.”

P The Water Recreation Opportunity Spectrum (WROS) Guidebook developed byReclamation can assist the preparers of RMPs in integrating recreation considerations intothe larger comprehensive planning effort where multiple uses and allocation of water andland resources are necessary. The purpose of this resource guide is to provide operationalguidance on how to implement WROS in the inventory, planning, and management ofrecreation opportunities on or adjacent to water resources. The guidebook details thecomponents of WROS and how they interface with Reclamation’s resource planningprocess; provides important recreation management guidelines and standards; andcontains important related information on visitor capacity, scenic resource assessment,and visitor monitoring.

P Reclamation’s NEPA Handbook (<http://www.usbr.gov/nepa>) describes policies andprocedures for implementing the National Environmental Policy Act (NEPA) of 1969 (42U.S.C. 4321, et seq.), the Council on Environmental Quality’s (CEQ) Regulations forImplementing the Procedural Provisions of NEPA (40 CFR [Code of Federal Regulations]Parts 1500-1508) and the Departmental Manual (DM) 516 DM 1-7. Since the preparation and implementation of an RMP is a major Federal action, Reclamation is

http://www.usbr.gov/Decision-Process

http://www.usbr.gov/nepa


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required to consider the environmental impacts of the action before the RMP isimplemented. The NEPA Handbook will assist preparers of the RMP in identifying therelated environmental laws and regulations that need to be addressed during the NEPAcompliance process and how the NEPA process is implemented in conjunction with otherdocuments such as RMPs.

P Economic and Environmental Principles and Guidelines for Water and Related LandResources Implementation Studies (P&Gs) may be of value as an economic analysisreference should land and resource development be identified in conjunction with theRMP’s stated management goals. The Economics Group in the Technical Service Center(TSC) has also published a number of technical memoranda providing guidance on thevarious types of economic and financial analysis specifically related to land-baseddevelopment on Reclamation lands. The guidance provided in the P&Gs can helpestimate the recreation, fish, and wildlife benefits of the planning effort, if so desired. TheP&Gs were established pursuant to the Water Resources Planning Act of 1965, P.L. 89-90, as amended, and are intended to ensure proper and consistent planning by Federalentities in the formulation and evaluation of water and related land resourcesimplementation studies.

P The Federal Advisory Committee Act (FACA), P.L. 92-463, as amended, providesguidance on establishing and maintaining advisory committees (e.g., board, commission,council, conference, panel, task force, or other similar group), which may be establishedby Reclamation to assist in the preparation of an RMP. The function of advisorycommittees should be advisory only and should be established under strict adherence tothe FACA.

Other directives, standards, guidelines, and mandates for such resources as cultural areas,recreation, lands, NEPA, and wetlands can be found on Reclamation’s intranet site under“Manuals” or on the internet at <http://www.usbr.gov/recman/>. (Note: The Worldwide Webaddresses referenced in this guidebook may change periodically and will be updated, along withother information, as necessary.)

Purpose and Benefit

The purpose of RMPs, which serve as a basis for future resource decisions, is to incorporate intoone document all the information pertinent to the future guidance of a management area. Thiscan include an analysis of the resources of the area, identification of land use suitability andcapability, land acquisition and disposal needs, determination and designation of land use zones,and development of management policies, objectives, responsibilities, guidelines, and plans. AnRMP should set goals for the management area, establish desirable use levels, identify types of

http://www.usbr.gov/recman/


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development and land uses, and, finally, determine how all of this will be accomplished. TheRMP is a continuation of Reclamation’s authorities, policies, and guidelines developed throughpublic input. The planning life of an RMP is typically 10 years; however, an RMP may bemodified by an amendment or totally revised, if warranted, before the end of the 10-yearplanning period.

The guidelines in this document are intended to introduce resource specialists to the basicconcepts and principles that can be used in a planning effort, such as:

P The need for public involvement

P Proper evaluation of public input

P The collection of appropriate resource technical information

P Proper analysis of the technical information

P The need for implementation schedules

P The need for monitoring and updating the information contained in the RMP

On a practical level, RMPs can assist in the preparation of annual Work Plans that reflect soundmanagement decisions. In addition, an RMP can achieve the followingobjectives:

P Incorporate other Reclamation planning and agreement information about a managementarea in a single document

P Define responsibilities, authorities, and rights in a management area

P Develop implementation schedules and provide the means to perform program evaluations

P Provide managers with a road map to wise resource use by establishing sound practices tomanage and protect resources, allocate resources, and identify appropriate uses of lands

P Allow public involvement to assist in making resource management decisions

P Justify budgets, because land management decisions have gone through the planningprocess, which included analyses of the impacts of the proposed action and publicinvolvement


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P Resolve a large part of the internal and external issues over land use matters that occur inthe absence of, or the disregard for, RMPs

P Establish use levels that protect resources and Project purposes and are compatible withthe needs of the public, if possible

P Identify appropriate types of land use development that may be permitted and provide forthe orderly, coordinated development of facilities in a given area

Organization of the Resource Management Plan Guidebook

The intent of chapter I is to present some of the basic concepts, principles, authorizations, andguidance dealing with the preparation of RMPs, and it includes a discussion of their value tomanagers. The remainder of this guidebook contains practical guidance on how to prepare RMPsthat optimize responsible resource management and that foster wise decisions. Chapter IIdescribes the administrative details that should be followed to successfully initiate the RMPprocess and to make the process run smoothly. Chapter III documents the steps in the resourcemanagement planning process and describes the different activities that need to be accomplishedwithin each planning step. Chapter III also describes the NEPA process and how it relates toresource management planning. Chapter IV describes a typical RMP outline by chapter anddiscusses the level of content within each chapter. Chapter V discusses other considerations, suchas graphics and geographic information system (GIS) products, that could be considered forinclusion in an RMP. Attachments are included in this guidebook to provide supplementalguidance for successful completion of RMPs. These attachments are provided at the end of thedocument in the order they are referenced.

Where appropriate, excerpts from the Resource Management Plan Guidelines (March 1991) ofReclamation’s Great Plains Region, and excerpts from the Mid-Pacific Region’s A Guide for thePreparation of Resource Management Plans (December 1988), have been included in thisguidebook. In addition, reference material associated with resource planning efforts of otherFederal entities has been used where appropriate.

ChapterChapter

IIII AdministrationAdministration

Introduction

Preparing RMPs for lands under Reclamation’s jurisdiction can be a time-consuming activity;therefore, RMPs should be scheduled on a priority basis for management areas that wouldbenefit from the completion of an RMP. As a result, many areas will need to be managed forextended periods of time without the benefit of an RMP. In these instances, area officepersonnel should use the many different laws, E.O.s, rules, regulations, policies, directives,and standards concerning Federal lands and activities to guide them in their managementactivities. Case studies of previous successful land management decisionsand procedures can be used for guidance. Advice and assistance are also available fromregional, Commissioner’s, and TSC offices.

Once a decision has been made, and funding and staff resources are assigned to preparean RMP, certain procedures or actions should be followed that can facilitate completionof RMPs in a timely and organized manner and within established budgets. This chapterdescribes some of the major administrative actions that should be accomplished byReclamation and others in preparing and implementing an RMP.

Responsibility

Area Managers and their staff are responsible for conducting resource management planning,as needed, for the acquired, withdrawn, and leased lands under their jurisdiction. However,depending on the terms and conditions of the management agreement, Reclamation maychoose to delegate this responsibility to a managing partner. If the responsibility is delegated,Reclamation should ensure that the managing partner(s) follow the guidance provided in thisguidebook and that Project purposes, Federal lands, and natural and cultural resources areprotected. The initial phase of this planning is to determine which areas need RMPs and todevelop a priority list to establish the order in which these plans will be prepared (see thefollowing section, “2. Process for Prioritizing Management Areas”). Once it is decided toprepare an RMP for an area, it is the job of the area office to actually prepare the plan or toensure it is prepared by another organizational level within Reclamation, such as the regionaloffice or the TSC, or by a managing partner or contract with a private consulting firm.

Regardless of which entity has primary responsibility, it is important that resourcemanagement planning be done in cooperation with all entities and groups that have an interestin the area or that have something to contribute to the planning effort.

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The area offices are responsible for scheduling, budgeting, preparing, and implementingRMPs. Reclamation’s goal is to provide some consistency in resource management planningand document preparation on a Reclamation-wide basis. Therefore, it is suggested thatReclamation offices follow the guidance provided in this guidebook.

Phase I Preliminary Resource Management PlanAdministrative Actions

Several administrative actions may have to be accomplished before an area office can initiatethe actual preparation of an RMP. Some of the major preliminary administrative actions thatmay be necessary are defining management areas, prioritizing management areas, budgetplanning, determining the level of NEPA compliance, preparing a statement of work (SOW),contract award, Office of Management and Budget (OMB) clearance for use of public surveysfor data collection, and establishing an interdisciplinary (ID) team.

1. Defining Management Areas

Individual RMPs should be developed for facilities/lands that are considered as individualmanagement areas. There are no fixed guidelines on what may comprise a management area,and management areas within a Project may vary in size and complexity. These lands mayencompass an entire Project, but usually consist of only a part or segment of the Project. Some examples of areas which could be viewed as a management area are:

P Entire reservoirs and surrounding areas

P Geomorphological boundaries such as drainage basins

P Wildlife or other mitigation areas that may be separated from other Reclamation lands

P Certain reaches of canals, drainages, and other irrigation works

P Specific areas within Reclamation’s jurisdictional boundaries or specific areas assignedto a managing partner

P Areas that have similar management problems or concerns

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1 MATS - PC, Multi-Attribute Tradeoff System, Version 2.02, Personal Computer Version, January 1994, is a user-friendlyprogram developed by Reclamation to assist decisionmakers in evaluating alternatives. For the purposes of this document,MATS - PC can assist Reclamation personnel in prioritizing the completion ofRMPs by comparing certain selected evaluation criteria/factors.

2. Process for Prioritizing Management Areas

When prioritizing management areas, the area generally identified as having the greatestimpact on the public or environmental resources should be given the highest consideration.

Because staffing and budgets are limited, it is recognized that emphasis will be given to thoseareas that could benefit the most from a completed RMP. As stated earlier, it isthe responsibility of each area office to complete RMPs; therefore, it should be theirresponsibility to prioritize and fund the RMPs.

In October 1993, a Reclamation-wide RMP team identified key factors to evaluate theneed for an RMP and submitted their recommendations to the Assistant Commissioner –Resources Management. The factors were then developed further into defined criteria used toevaluate the management areas needing RMPs. These criteria include:

P Cost-share opportunities for RMP preparation

P Public use/user conflicts

P Economic benefits

P Management responsibilities

P Cultural and natural resource protection

P Existing land uses

The Multi-Attribute Tradeoff System (MATS)1 was then used by applying the evaluationcriteria to each proposed management area and used to compare each area on a priority basis(see attachment B for an example of the priority system used by the RMP team in prioritizingcertain management areas and for the MATS - PC user manual and computer disk of theprogram). Each office may use this system, or a similar system, to help prioritizemanagement areas to be covered under an RMP. Attachment C includes a diagram-matic sketch of a prioritization process that was submitted to all regions via memorandumdated May 6, 1988, from the Assistant Commissioner – Resources Management. It is


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important to note that considerable time and effort should be used to collect similarinformation for each management area. The evaluation criteria can then be used objectivelyto prioritize the areas to be covered in an RMP.

3. Budgeting

Since Area Managers are responsible for the preparation of RMPs, all budget requests shouldbe initiated at the area office level following the same procedures that are used for budgetingother activities. Every region budgets somewhat differently, but, generally, the area officesprepare budget estimates and justifications and submit them to the regional office forconsolidation. Reclamation should always seek alternative funding sources, such as costsharing with managing partners.

Guidance on budgeting can be found in the “Administrative Series - Budget Management”section of the Reclamation Manual and in the Program and Budget Handbook. Funds forpreparing RMPs should be budgeted under “A20 Level 2 (Activity): Land Management andDevelopment.” More information on budgeting can be found on Reclamation’s intranet siteat <http://www.usbr.gov/recman/index.htm>.

Remember that the size of the area is not the only factor that may influence the cost ofan RMP and that the cost of preparing an RMP is not directly proportional to the size(e.g., the cost for preparing an RMP for a small reservoir may be just as much as for a largereservoir). Budget estimates should be prepared early in the process so that adequate fundingcan be requested in advance and over an extended period of time (approximately2 years). In addition to size, some items that may influence the cost of completing an RMPare:

P Availability or absence of data which might be necessary to evaluate potential actionsneeded to make reasonable management decisions

P Public use of the area (e.g., user conflicts attributable to the use of the managementarea by the public or other land uses such as the number of licenses, leases, andpermits issued within a management area)

P Level of NEPA compliance required for the Federal action of preparing andimplementing an RMP (e.g., categorical exclusion [CE], environmental assessment[EA], or environmental impact statement [EIS])

P Number of internal and external issues identified in pre-scoping

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2 Tiering is defined as “The coverage of general matters in a broad National Environmental Policy Act document withsubsequent narrowly focused documents; it helps to eliminate repetitive discussions and allows the site-specific documentsto focus on specific issues.”

3 Departmental Exclusion 1.10 addresses policies or directives that are administrative or that are too broad,speculative, or conjectural for meaningful analysis.

4 Reclamation Exclusion 9.4C4 addresses approval on land management plans when implementation will only result inminor construction activities and minor changes in operation and maintenance activities.

P Location (e.g., urban, rural, or remote)

P Types of natural and cultural resources existing within the management area

P Level of consultation needed with concerned State and Federal entities such as theFWS and State Historic Preservation Officer (SHPO), Tribal/National governments,and private organizations such as Trout Unlimited, Audubon Society, and DucksUnlimited

P Types of mapping or inventories needed (GIS or AutoCad map preparation, wetlandor cultural resource inventories, etc.)

4. NEPA Compliance

The level of NEPA compliance necessary to complete an RMP will affect budgets andschedules; therefore, the area office should determine the likely level of NEPA compliancenecessary and implement the appropriate NEPA activity early in the RMP process. Depending on available funding and resource program needs, area offices will prepare either aprogrammatic or site-specific RMP and NEPA compliance document. (See NEPA Handbookfor guidance on programmatic NEPA compliance.) If a programmatic RMP and associatedNEPA compliance document is prepared, site-specific NEPA will have to be accomplishedbefore the initiation of any ground-disturbing activities. When site-specific NEPA is initiatedfor actions identified in the RMP, Reclamation can tier2 off the existing RMP NEPAdocument or other existing NEPA documents that may have a bearing on the managementarea and its resources. Potential NEPA compliance levels include:

P Categorical exclusion (DOI, Departmental Exclusion 1.10,3 or Reclamation Exclusion9.4C44)

P Environmental assessment

P Environmental impact statement


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The area office should use Reclamation’s NEPA Handbook to coordinate the NEPA processwith the RMP process. The NEPA Handbook provides detailed guidance on the NEPAprocess and can be accessed at <http://www.usbr.gov/nepa>, and the discussion of NEPA inchapter III provides additional information.

5. Preparing a Statement of Work

The area office should prepare a SOW for the preparation of an RMP. It is best to prepare aSOW prior to the year funding is programmed. This effort will facilitate the award of acontract as funds become available and ensures obligations and work will be substantiallycompleted in the designated timeframe. The SOW is intended to provide detailed guidance tothe Reclamation personnel or private contractors who are preparing the RMP for the initiatingoffice. The SOW should be prepared under the direction of the team leader or otherdesignated person. Two examples of a SOW are included in attachment D. The maincomponents of a SOW should include, but are not limited to:

P A background section describing the management area, responsible office, identifiedissues, and tasks to be performed.

P An overview section describing, in general terms, the products—such as a PublicInvolvement Plan (PIP), RMP, NEPA document, Work Plan, and schedule—that areto be completed. This section may also include a description of the relationship of theRMP to the PIP, as well as the level of consultation and coordination needed with theContracting Officers Technical Representative if the RMP is being contracted, or withthe team leader if the RMP is to be completed in-house.

P A section that details both the general and specific tasks required of the contractoror Reclamation personnel preparing the RMP and NEPA document (i.e., what iscontained in each chapter of the RMP and NEPA document), including a descriptionof the resource management area (physical boundaries), data collection needs, andothers. This section should also provide specific details on how to conduct publicinvolvement activities (conduct public meetings, open houses, and public hearings;prepare scoping notices, public newsletters and updates; and process publiccomments).

P Government or initiating office responsibilities, including a list of responsibilities thatthe Government or initiating office will have during the process and what, if any,deliverables are to be given to the contractor or Reclamation personnel who arepreparing the RMP and NEPA document.

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P Deliverables and reporting responsibilities of the parties who are preparing the RMPand NEPA document. This could include, but is not limited to, progress reports, draftdocuments, maps, data, photographs, review procedures, and others.

P Attachments that are part of the SOW to help guide the contractor or Reclamationpersonnel in the successful completion of the RMP and NEPA document. Attach-ments could include this guidebook, a sample outline of a typical RMP, a NEPAdocument format, a list of resources to be discussed, a list of known interested parties,and others.

The SOW should identify the planning effort in sufficient detail so that resource require-mentsand costs can be estimated. Therefore, the completed SOW should enable the proposedpreparers of the RMP and associated NEPA document to submit the following items to theresponsible office for evaluation:

P Staff-day cost estimate and breakdown of tasks by discipline

P Work Plan

P PIP

P Schedule

P Cost estimate, including travel costs

P Personnel assignments

P Deliverables

P Communication responsibilities

In addition to the SOW, the area office under the direction of the team leader should prepare adetailed Government estimate for the costs outlined in the SOW. This estimate is comparedto the proposal submitted by the entity requested to prepare the RMP.

Estimates for additional services and modifications to contracts or agreements may benecessary as the planning process is carried out. It is very important to work with contractingstaff to ensure that procurement requirements are met as these changesoccur.


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6. Contract Award

If managed correctly, contracting with the private sector or another Reclamation organizationto have RMPs prepared, rather than doing them at the area office, can be a successful methodof completing the RMP and NEPA document. Since the TSC has the capability to produceRMPs and associated NEPA documents, the area office should first attempt to contract withthe TSC for preparation of RMPs. A SOW should be supplied to the TSC, attention: Resources Management and Planning Group, Denver Technical Service Center. The SOWtransmitted to the TSC should be similar in scope to a SOW that would be provided to aprivate consultant and as outlined below. The TSC will then supply the requesting office witha proposal outlining the items noted in “5. Preparing a Statement of Work.” If the proposal isaccepted by the area office, a service agreement between the area office and TSC will have tobe completed and a date to commence work negotiated.

If a private consultant is used, it is very important to follow the proper acquisition procedures,as outlined in the Federal Acquisitions Regulations, and to coordinate the effort with theprocurement office. An acquisition strategy should be jointly developed and finalized by thearea office and the procurement office before obtaining a contractor. Before an attempt ismade to procure contract services through the competitive process, a review should beconducted to determine if an Indefinite Quantity Delivery Contract might already be in placethat could be used to provide the needed services.

When using a private contractor, it is essential that the contractor prepare the RMP based onthe direction provided in this guidebook and on Reclamation’s goals, objectives, andperspectives rather than those of other entities or segments of the public for whom thecontractor has previously worked.

7. Office of Management and Budget Clearance

In some instances, it may be necessary to collect public information to establish baselinerecreation, economic, or other resource information. Any questionnaire(s) given to thepublic to solicit such information requires the approval of the OMB. The questionnairepackage sent to the OMB elicits a time-consuming and rather comprehensive process;therefore, it is necessary to start the OMB approval process in the early stages of the RMPplanning process. (It takes the OMB approximately 6 months to approve a questionnaire thatcan be distributed to the public.) Checking with Reclamation’s Resource Management andPlanning Group, Denver Technical Service Center, will reveal whether there is an existingOMB-approved survey questionnaire that would meet the needs of the area office collectingsuch information.


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OMB, 5 CFR, Parts 1320.3(h)(4) and (8) discuss exemptions to OMB formal approval relatedto public involvement activities. This CFR, along with other CFRs, can be accessed at<http://www.access.gpo/nara/cfr/>. Item 4 allows Federal entities to obtain generalinformation from the public as long as personal information about the commentor is not asked, other than self identification (i.e., name and address for the RMP mailing list).Item 8 is the exemption for any public comments associated with public meetings or hearings.

8. Establishing a Team Leader and Interdisciplinary Team

Preparation of an RMP requires an interdisciplinary approach coordinated by a team leader orother designated person. The team leader oversees an RMP process that is not a straight-lineprocess with a clearly identifiable beginning and ending point; it is more of an interactiveprocess with a number of steps and stages that may be repeated until sufficient data andpublic input are gathered to make a decision. This individual not only manages the teammembers, but oversees the public involvement program and is the public contact for mattersconcerning the RMP. With assistance from other staff, the team leader must decide what typeof and how much public involvement is required during the RMP process.

The composition of an ID team is critical in determining the success of the planning effort.The team leader oversees administrative, technical, and plan documentation by using theexpertise of other relevant staff, such as engineers, reports writers, biologists, hydrologists,geologists, and economists, and procurement, natural resource, cultural resource,environmental, public involvement, recreation, and realty specialists. The team leader shoulddecide which disciplines are necessary and then guide and direct the process to completion. The composition depends on the nature of the planning effort.

An ID team is needed to effectively respond to the complex needs of customers andorganizations and to better identify potential impacts to the existing environment. While themix of disciplines required for a team may vary from RMP to RMP, there are some genericcharacteristics of good team members. Good team members should:

P Possess the technical expertise to meet study needs

P Have the temperament to fit in with other team members, the team leader, and thepublic

P Work within the funding limits, study schedule, or other Work Plan requirements

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5 The responsible official must recognize the government-to-government relationship between American IndianTribal/National governments and the Federal Government and must consult with and invite Tribes/ native Nations toparticipate throughout the planning process as outlined in E.O. 13175, “Consultation and Coordination with IndianTribal Governments” (November 6, 2000). The Worldwide Web address is <http://ceq.eh.doe.gov/nepa/regs/eos/eo13175.html>.

A high degree of communication and informal coordination among all team members and theteam leader should occur throughout the planning process.

The team leader and ID team must also recognize the role of Tribal/National5 governments,other Federal agencies, and State and local governments as regulators, land managers, andrepresentatives of State constituencies, local communities, and other entities interested in oraffected by uses of Reclamation lands and resources. Accordingly, opportunities must beprovided for involvement of State, local, and Tribal/National governments in the planningprocess, including opportunities to participate in the identification of topics of general interestor concern relating to the plan area, and to:

P Participate in the formulation of proposed actions that may affect or influence

programs

P Contribute to the streamlined resolution of any inconsistencies among Federal entitypolicies, RMPs, or programs

P Develop, where appropriate and practicable, joint RMPs

P Comment on draft documents

The team leader should ensure that appropriate information is made available and that no one,including persons with diverse opinions and values, is deliberately excluded or deniedparticipation in the resource management planning process. Every effort should be made toreach a diverse cross-section of the general public, not just current land users or othergovernment entities.

The primary duties and responsibilities of the team leader are to:

P Ensure team communication, define management roles and responsibilities, anddevelop management study plans

P Clarify objectives and identify problems and needs

P Locate resource staff needs from Reclamation or contractors


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P Schedule and prioritize work tasks, identify issues that will affect the prioritization oftasks, monitor performance, and ensure quality control of documents

P Evaluate benefits versus costs, develop cost estimates and service agreements, andtrack budgets and expenditures

P Coordinate public involvement activities and attend and lead public meetings and openhouses

P Schedule and lead an adequate number of team meetings and resolve conflictsbetween team members, if necessary

P Periodically brief area and regional management on the progress of the RMP, issues,and alternatives

The primary duties and responsibilities of the ID team are to:

P Assist in scoping for environmental compliance

P Inventory and evaluate resource needs

P Assist in formulating and analyzing alternatives and selecting preferred alternative(s)

P Assist in preparing documents for decisionmakers

P Follow the Work Plan

P Identify mitigation measures, monitoring efforts, and program standards

P Attend public meetings when necessary

P Work as a team by attending ID team meetings and communicating with teammembers throughout the planning process

Phase II Administrative Actions Required During the Preparationof a Resource Management Plan

Several administrative actions should be followed once the RMP process has been initiated,whether the RMP is being prepared by the area office or has been awarded to a contractor. Several of the administrative actions that need to be completed during this phase of the


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RMP process and discussed below include activities required by legislation. Because theseactions directly affect the length of time needed to complete an RMP, they should beconsidered when establishing a time line for completion.

In addition, some of the administrative actions listed in this section are also considered to beNEPA compliance actions that would routinely be addressed as part of the NEPA process. These particular administrative actions are mentioned here rather than the NEPA section inchapter III to highlight their importance to the planning process (i.e., that consultation andcoordination efforts have to be initiated early in the planning process so that pertinentinformation can be used by Reclamation in establishing reasonable RMP management actionsfor a variety of natural and cultural resources).

The following are some of the possible actions to be accomplished once the RMP has beeninitiated: preparation of a Work Plan and schedule; preparation of a PIP; Fish and WildlifeCoordination Act (FWCA), Migratory Bird Treaty Act, and Endangered Species Act (ESA)consultations; consultation for the National Historic Preservation Act (NHPA), IndianTrust Assets (ITAs), Indian sacred sites, and Native American Graves Protection andRepatriation Act (NAGPRA); FACA initiation and documentation, if necessary; preparationand maintenance of an active mailing list; preparation of public notices and newsletters;printing of team and administrative drafts; and preparation of final RMP and NEPAdocuments.

1. Preparation of Work Plans and Schedule

Work Plans are needed to get a clear picture of the scope, duration, and purpose of aproposed RMP. Work Plans address the approach and limits of the RMP and providedirection. Well-prepared Work Plans result in a more efficient use of time and effort in theRMP process. It should be noted that as information is gathered, conditions and issues maychange the direction of the RMP, and when this occurs, Work Plans should be revisitedand updated as needed, and contracts or service agreements may need to be modified. Attachment E provides a list of questions to consider in the preparation of a Work Plan (seeattachment F for an example of a Work Plan [Upper Colorado Region]).

A schedule should be prepared that allows sufficient time to complete the actions that may beidentified in the Work Plan. The schedule should allow completion of the RMP andassociated NEPA document within the timeframe in which funding is available. If theschedule changes due to unforeseen circumstances, the Work Plan should be modifiedaccordingly, and additional funding may have to be secured. See attachment G for anexample of a typical activity schedule (Lower Colorado Region).


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2. Preparation of a Public Involvement Plan

The purpose of the PIP is to ensure that whenever Reclamation actions may significantlyaffect individuals or groups, Reclamation will systematically provide opportunities foraffected individuals, groups, and communities to be informed about the issues; asappropriate, to participate in the definition of the problem, objectives, and possible solutions;and to have their views documented and considered in the decisionmaking processes. Thegoals of the PIP are to ensure that programs respond to public needs and concerns and thatthey provide meaningful opportunities for the public to participate in and provide input todecisionmaking processes. This type of public involvement improves opportunities fordeveloping successful agreements and solutions, minimizes litigation and disputes, invitesinput from all stakeholders, and provides credibility and accountability to the process. Seeattachment H for an example of a PIP that was prepared for an RMP in New Mexico.

Additional information regarding public involvement for Reclamation activities can be foundin the Reclamation Manual. See Reclamation Manual CMP PO3 and CMP 04-01(<http://www.usbr.gov/recman/>). DM 301, chapter II, also contains information on publicinvolvement. Also see attachment I for The Public Meeting Survival Guide prepared by theDOI, FWS, and the Oregon Department of Fish and Wildlife. This survival guide outlinesprocedures and strategies for conducting public meetings.

3. Endangered Species Act, Fish and Wildlife Coordination Act, and Migratory BirdTreaty Act Consultations

FWS/National Oceanic and Atmospheric Administration (NOAA) Fisheries shouldbe consulted early in the planning process (pursuant to section 7 of the ESA of 1973,P.L. 93-205, as amended). Once the action area is determined, a list should be requested fromFWS/NOAA Fisheries to determine if the area covered by the RMP includes federally listedproposed endangered and threatened species, candidate species, species of concern, or criticalhabitat. This list will be the basis of the biological assessment (BA) or evaluation by theaction agency. This BA will evaluate the potential effects of the action on the listed speciesand critical habitat provided in the list. The BA should reach a conclusion of “no affect,”“may affect but not likely to adversely affect,” or “likely to adverse affect.” If a conclusion of“no affect” is reached for all listed and proposed species and critical habitat, no further actionis required. If a conclusion of “may affect but not likely to adversely affect” is reached forany listed or proposed species and/or critical habitats, the analysis must be forwarded toFWS/NOAA Fisheries for their concurrence in the conclusion. If a conclusion of “likely toadversely affect” is reached for any listed species or critical habitat, formal consultation mustbe initiated with FWS/NOAA Fisheries. Formal consultation is concluded within 135 days


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(unless an extension is agreed upon) with the delivery of a complete biological opinion (BO). The BO provides the FWS/NOAA Fisheries with an opinion of whether the Federal action islikely to jeopardize the continued existence of listed species or result in the destruction oradverse modification of critical habitat. The BO may also provide reasonable and prudentalternatives to avoid jeopardy and reasonable and prudent measures to reduce take.

The FWCA requires coordination with the FWS when Reclamation is developing waterresource projects that modify water of the United States. By separate memo, Reclamationtypically provides funding for this coordination. This type of project development shouldnever be an issue in the development or revision of RMPs. However, the FWCA process canstill be used (as can the NEPA process) to ensure close coordination with FWS in addressingwildlife mitigation issues. Once the basic action is defined (at about the same point inReclamation’s process when the species list is requested from FWS/NOAA Fisheries), aReclamation office may begin to coordinate with FWS under the provisionsof the FWCA. The outcome, which should occur before the final NEPA document iscompleted, is a report from FWS to Reclamation that recommends mitigation to minimizeeffects on fish and wildlife resources. When a new water development project is involved andReclamation does not accept certain FWS mitigation recommendations, Reclamationis required to explain why such mitigation recommendations were not accepted andimplemented. When a new water development project is not involved (i.e., most of the timefor RMPs), Reclamation should document their response to these recommendations. Beaware that FWS staff often view the scope of the FWCA as including any effect on waters ofthe United States, and a clear definition of how it applies to a particular RMP should bedetermined jointly with FWS early in the process. Also, FWCA staff and ESA staff withinFWS/NOAA Fisheries are generally varied and, therefore, different recommendations may bereceived.

Unlike the ESA or the FWCA, there is no established procedure for coordination under theMigratory Bird Treaty Act. The act itself prohibits the take (unlike the ESA, “take” meansactual harm to individuals, not harm to habitat) of migratory birds unless a permit is obtained. This act has been broadly accepted as applying to intentional take; however, it has recentlybeen applied to unintentional take as well. There is an established process for obtaining apermit for intentional take. When unintentional take is likely, it may be useful, as part ofeither the FWCA consultation or NEPA process, to identify mitigation to minimize that take.

4. National Historic Preservation Act Consultation

Pursuant to section 106 of the NHPA, consultation with appropriate American Indian (Indian)Tribes/native Nations, the SHPO, and the interested public must be initiated to determine theArea of Potential Effect and the existence of archeological sites, traditional cultural properties(TCPs), and/or historic buildings, structures, and objects within the study area to be covered


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under the RMP (see below for discussion on Indian sacred sites). It is Reclamation’s policyto avoid impacts to cultural resources whenever feasible. If an action is planned that couldadversely affect significant cultural resources (including archaeological sites, TCPs, andhistoric buildings, structures, or objects), Reclamation will investigate options toavoid that site. If actions contemplated in the RMP were to have an adverse effect oncultural resources or TCPs, then Reclamation would consult further with the SHPO, IndianTribes/native Nations, and others, as appropriate, to determine the mitigation measures thatmay be necessary. Any consultation efforts related to section 106 of NHPA should beconducted by qualified Reclamation personnel (not a contractor). Figure II-1 depicts the stepsin the section 106 process. Section 106 consultation may also involve the Advisory Councilon Historic Preservation. For further information, see <http://intra.usbr.gov/>.

5. Indian Trust Assets Consultation

Early in the planning process, consultation should be initiated with appropriate IndianTribes/Nations and the Bureau of Indian Affairs (BIA) concerning potential ITAs. The initialcontact with the Indian Tribes/Nations in the immediate area should be government-to-government in a face-to-face meeting, if possible. Coordination should also occur withReclamation's Native American Affairs Office and the BIA to identify other Indian Tribes/Nations outside the immediate area that may be interested or affected.

ITAs are legal interests in property held in trust by the United States for Indian Tribes/ Nationsand individual Indians. Examples of ITAs are lands, minerals, hunting and fishing rights, andwater rights. The United States has a trust responsibility to protect and maintain rightsreserved by or granted to Indian Tribes/Nations or individual Indians by treaties, statutes, andE.O.s, and these rights are sometimes further interpreted through court decisions andregulations. This trust responsibility requires Reclamation to take all actions reasonablynecessary to protect ITAs in consultation with local Tribes/Nations (see Reclamation’s NEPAHandbook for further guidance on ITAs) and Reclamation’s policy of July 2, 1993. Thisconsultation effort should be documented in the RMP and NEPA document.

It should be noted that consultation efforts to identify ITAs is separate and distinct fromsection 106 and Indian sacred sites consultation. Therefore, close coordination with theappropriate Native Affairs Office and cultural resource ID team members is recommendedwhen initiating ITA consultation. Any consultation efforts related to ITAs should beconducted by qualified Reclamation personnel (not a contractor).

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Figure II-1.—Section 106 regulations flowchart.


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Reclamation should establish a government-to-government relationship with appropriateIndian Tribes/Nations and consult on the presence of Indian sacred sites within the Area ofPotential Effect. The initial meeting should be face-to-face, if possible. If no responseis received from the Indian Tribes/Nations, Reclamation will contact Indian Tribes/Nationsbefore implementation of any RMP management actions that could affect Indian sacred sitesto determine if they are aware of the presence of any sacred sites in specific impact areas.

E.O. 13007, Indian Sacred Sites (May 24, 1996), directs Executive branch agencies toaccommodate access to, and ceremonial use of, Indian sacred sites by Indian religiouspractitioners and to avoid adversely affecting the physical integrity of such sacred sites onFederal lands. The agencies are further directed to ensure reasonable notice is provided ofproposed land actions or policies that may restrict future access to, or ceremonial use of, oradversely affect the physical integrity of, sacred sites. The E.O. defines a sacred site as a“specific, discrete, narrowly delineated location on Federal land that is identified by an IndianTribe, or Indian individual determined to be an appropriately authoritative representative of anIndian religion, as sacred by virtue of its established religious significance to, or ceremonialuse by, an Indian religion.” Any consultation efforts related to Indian sacred sites should beconducted by qualified Reclamation personnel (not a contractor). The Executive Order forIndian Sacred Sites (E.O. 13007) can be found in Reclamation's NEPA Handbook . Additionalinformation can be obtained at <http://intra.usbr.gov/> by clicking on "Cultural Resources".

7. Native American Graves Protection and Repatriation Act

The NAGPRA establishes ownership of Native American human remains and associatedburial items with individual Indians who can establish lineage to the remains or items, orIndian Tribes/Nations that can establish cultural affiliation with the remains or items. If,during the execution of an RMP, Native American human remains are discovered,consultation procedures established by Reclamation Directives and Standards LND 07-01shall be followed. Any consultation efforts related to NAGPRA should be conducted byqualified Reclamation personnel (not a contractor).

8. Federal Advisory Committee Act Initiation and Documentation

As stated in chapter I, an advisory committee may be used to assist in decisionmaking onparticular actions that may be of general public interest or concern. FACA provides thepublic the opportunity to render advice and assistance to the Federal Government throughadvisory committees. The responsibilities of the advisory committees are to provide advice

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that is relevant, objective, and open to the public; act promptly to accomplish their work; andcomply with reasonable cost controls and recordkeeping requirements. It should be notedthat this type of advisory group is typically not necessary during the RMP planning process. It is recommended that advisory groups not be used and that other types of working groupsconsisting of concerned entities or individuals be used to solicit input into the RMP planningprocess.

If found to be necessary, advisory committees should be chartered early in the process. When such committees are used, FACA should be followed. Advisory committees should beofficially terminated when they are no longer fulfilling the purposes for which they wereestablished. All FACA actions (chartering, re-chartering, and nominations of members, etc.)must be coordinated through Reclamation’s Committee Management Officer. (Note: TheWorldwide Web address for FACA is <http://www.epa.gov/ ttn/faca>.)

9. Preparation and Maintenance of an Active Mailing List

An active and up-to-date mailing list is essential for dissemination of information and forpublic involvement. The mailing list established during the RMP process should bemaintained and updated throughout the life of the plan. This list should be used to provideinterested parties with copies of the RMP and modifications, information related to pro-posedamendments or revisions, and information related to NEPA compliance, as they desire (thelist should include an indication of what, if any, specific documents or information a listedentity wants to receive). An active, up-to-date mailing list is essential for public involvementand dissemination of information in all phases of an RMP and associated NEPA compliance.

A preliminary mailing list should be created early in the process and should include concernedlocal, State, and Federal entities; Federal and State legislators; Tribal/National governments;and special interest groups and concerned individuals, including congressional delegation(s)and State legislators. Area and/or regional offices usually have a master mailing list that canserve as a basis for creating the mailing list to be used during the preparation of the RMP. TheCustomer Information System (CIS) for respective regions should be used to the extentpossible (guidance on the CIS can be obtained by accessing <http://intra.do.usbr. gov/CIS/>).

As scoping and public involvement are conducted, additional names and organizations shouldbe added and updated, as appropriate. Existing addresses not already in the CIS should beadded, as well as new addresses that become available during the public involvement process. Such a database can facilitate the preparation of mailing labels for mailing notices, newsletters,and RMP updates, and for printing a comprehensive mailing list to be included in the NEPAdocument. Since some States prefer to coordinate their comments through Stateclearinghouses, it may be desirable to include addresses for clearinghouses, as appropriate.

http://www.epa.gov/ttn/faca

http://intra.do.usbr.gov/CIS/


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10. Preparation of Public Notices, Newsletters, or Updates

Public notices and/or newsletters should be prepared and sent to newspapers and knownconcerned entities and individuals to announce the initiation of the RMP process, public openhouses that may be scheduled, availability of draft documents for review by the public, andlocation/dates of where and when copies of the final RMP and NEPA document can beobtained. Consideration should be given to using the Federal Register as a mechanism tosolicit comments from the public. However, announcements in the Federal Register alonewill not adequately reach the general public. (See attachment J for a series of newsletterspublished for the Heron Reservoir Resource Management Plan in New Mexico.)

To keep the public informed throughout the planning process, updates in the form of publicnotices or newsletters should be made available on a periodic basis. All public involvementactivities should be coordinated with the regional public affairs office. Area Managers, for themost part, have approval authority for fact sheets, flyers, site-specific brochures, andnewsletters. Regardless of who has final approval, Reclamation personnel should use form 7-2525 for initiating a publication. See attachment K for a photocopy of form 7-2525.

11. Printing

If the RMP/NEPA document is to be prepared by the area office, it is necessary to arrange forthe printing of the document early in the process. It is important to know how long it will taketo print team, administrative, public review drafts, and the final document(s). Printing can beaccomplished through the United States Government Printing Office (GPO) internally, orcommercially. There may be restrictions on the use of commercial companies for printing if aGPO source or provider is available in a given area; therefore, each respective office shouldcheck to see if such restrictions are in force.

Phase III Post-Administrative Actions Required After ResourceManagement Plan Completion

Once the RMP has been finalized, there are certain administrative actions that must beaccomplished for the RMP to remain an effective tool for administering the lands covered


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under the RMP and for informing the public of changes to the RMP that may be required. The post-administrative actions that should be addressed include plan distribution, integrationwith other programs, RMP implementation, RMP monitoring, RMP adjustments, andadministrative record maintenance.

1. Plan Distribution

For an RMP to be of value, it must be in the hands of everyone who plays a role in themanagement of the area. Therefore, it is important to distribute the plan widely to allpersonnel and entities that are involved and to impress upon them that the plan is aworking document and must be readily available for reference in all management actions anddecisions; the plan will do no one any good if it is placed on a shelf and forgotten. It is alsoimportant for the office distributing the plan to keep good records of who received it sorevisions and updates can be easily distributed to everyone who has a copy of the originalRMP/NEPA document.

An RMP should be used by anyone involved in the management or administration of Reclamation lands and resources—Area Managers; managing partners; supervisors; lands, recreation, environmental, engineering, and operations staff; water user organizations; wildlifeand park officials; maintenance staff; politicians at Federal, State, and local levels; and others.

Area offices may consider producing electronic versions of draft documents to place on theinternet for review and comment or to distribute by CD-ROM.

2. Integration with Other Programs

A well-prepared RMP can provide valuable direction and guidance for implementingprograms and for monitoring progress. Reviewing the information regarding proposedmanagement actions in an RMP before proceeding with any actions contemplated by the areaoffice will ensure that the RMP is being followed and that informed decisions on the future ofthe area are made. RMPs should be reviewed before developing, revising, or updatingprograms; performing studies; collecting information and/or data for Reclamationareas; or preparing any development plans. Lands and resources should be monitored tomake sure the proposed work is in harmony with the RMP and does not duplicate previousefforts. The RMP will help determine the scope and the extent of proposed work to achievethe desired future condition within the management area.

Integrating the area offices’ activities should be an easy task since the RMP identifies futuremanagement direction. Office Work Plans and programs should be developed and planned


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around the RMP to achieve the desired future condition of the management area. The RMPhelps establish the basis for studies, monitoring, and development, making it a valuable toolfor identifying work that needs to be accomplished. It provides management with detaileddocumentation for preparation of Work Plans and budgets for achieving an identified long-term objective.

3. Resource Management Plan Implementation

RMPs should outline responsibilities for implementation. When the management areacovered by the RMP is solely managed by Reclamation, then Reclamation is responsiblefor implementing the actions outlined in the RMP. In most instances, however, the area willbe managed cooperatively by Reclamation and another Federal entity, such as the U.S. ForestService (FS) or a State or local government entity. When an area is cooperatively managed,implementation of the management actions in the RMP will be the responsibility of allinvolved entities. Work Plans to accomplish the identified actions should be completed bythe responsible entity, and an adequate level of funding should berequested.

As stated previously under “Phase I Preliminary Resource Management Plan AdministrativeActions, 4. NEPA Compliance,” site-specific NEPA will likely have to be completed and allenvironmental and cultural resource clearances will have to be obtained before any ground-disturbing activities are initiated.

Because RMP implementation is a planning process step, see chapter III, “Planning ProcessSteps, 9. Implementation and Monitoring of a Resource Management Plan” for furtherdiscussion of RMP implementation.

4. Resource Management Plan Monitoring Program

The monitoring program for the RMP should be able to:

P Track progress in implementing the RMP

P Track the effectiveness of management actions

P Track progress toward a desired condition

P Detect unacceptable effects


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It is suggested that monitoring activities should occur approximately every 3 years; however,monitoring activities may be reduced when goals and objectives have been reached.

See chapter III, “Planning Process Steps, 9. Implementation and Monitoring of a ResourceManagement Plan,” for additional information on RMP monitoring.

5. Resource Management Plan Adjustments

An RMP is a dynamic document and is subject to change. A plan may be modified throughan amendment or total revision. The level of NEPA compliance necessary for an amendmentor revision will be determined by Reclamation.

See chapter III, “Planning Process Steps, 10. Amendments and Revisions to a ResourceManagement Plan,” for further discussion on this subject.

6. Administrative Record

The final RMP and supporting documents and data, both paper and digital (e.g., maps,databases, etc.) are considered official records and should be properly maintained. (Refer tothe Reclamation Manual directives and standards on this subject and the WorldwideWeb address <http://www.usbr.gov/recman/rcd> under “RCD 05-01 Records andInformation Management” for further information.

http://www.usbr.gov/recman/rcd

ChapterChapter

IIIIII Planning ProcessPlanning Process

Introduction

The RMP planning process involves several steps that may, at times, repeat until the desiredobjective(s) are obtained. It is important that the planning process follows a systematicapproach that allows participants to be kept informed of the status of the RMP process andkeeps them notified when additional input or review is needed. Figure III-1 shows the stepsto be taken in preparing an RMP.

The final RMP should discuss each step in the planning process and how each step relates tothe preceding step. It is important to remember that NEPA compliance activities should beoccurring at the same time that Reclamation is completing the RMP planning process steps.

Level of Planning Effort

An RMP should be prepared in enough detail to direct future development and use ofthe resources within the management area while being flexible enough to allow for theresolution of day-to-day operational problems. The RMP can provide guidance on how tobest plan for, develop, and manage existing and future land uses on Reclamation lands. Thelevel of detail required will determine what resource disciplines are needed to address theissues identified through internal review of policies and programs and through external publicscoping. As stated earlier, the team leader, in cooperation with other office personnel, shouldidentify the disciplines needed, as well as the level of planning effort required.

The level of effort required to develop the RMP will depend on such factors as:

P Resource planning detail

RMPs may include different levels of detail; the greater the level of detail, the greater the planning effort necessary. The level of detail may range from a broad“zoning level” (similar to county or city zoning) to a detailed “specific level.” The“zoning level” provides management direction on a broad scale, usually identifyinggeneral permitted or excluded uses within an area or zone. The “specific level”provides more detailed management guidance for uses, resources, or sites within azone. The level of detail depends on the size, complexity, and importance of themanagement area; the resources present; the issues identified; and management

III-2Resource Management Plan Guidebook

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Figure III-1.—Planning process flowchart.

III-3Chapter III – Planning Process

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needs and concerns. The desired level(s) of detail should be specified in the SOW. Preparation of SOWs is described in detail in chapter II, “Phase I Preliminary ResourceManagement Plan Administrative Actions, 5. Preparing a Statement of Work.”

Examples:

Zoning level – Identification of relatively large areas for a general use or managementdirection (e.g., 500-acre block to be managed for wildlife, with limited dispersedrecreational use, seasonal and area closures to protect wildlife values, and few, if any,recreational facilities provided).

Specific level – Detailed specification of how a resource, use, or site might be managed(e.g., maintain 20 acres of potential southwest willow flycatcher habitat with a maturecottonwood overstory of at least 50 percent crown closure and a shrubby, willow-dominated understory with at least 75 percent crown closure; no livestock grazing orpublic use allowed within 200 feet of the stand).

P Data requirements

Managing entities other than Reclamation may have already completed RMPs or otherstudies with data, in which case data collection requirements could be minimal. Inother cases, sensitive or controversial environmental issues could require collection offield survey data before or during the planning process. The SOW should identifyanticipated planning data requirements.

Planning Process Steps

The planning effort should be tailored to provide an RMP document sufficiently detailed todirect future development and use of the resources while being flexible enough to allow forthe resolution of day-to-day operational problems. Following is a brief discussion of each ofthe RMP planning process steps shown in figure III-1. The purpose of this section is to showthe preparer of the RMP the importance of each planning step and the appropriate level ofstaff specialist involvement. The discussion, for the most part, deals with only the planningprocess steps; however, NEPA compliance activities are mentioned for added value and forclarification purposes since NEPA compliance activities are especially important during theRMP alternative formulation and examination planning process steps. (A more detaileddescription of integrating NEPA into the planning process is contained at the end of thischapter.) A detailed RMP process outline is included as attachment L. This process outlinecan be used as a checklist to ensure that the RMP preparer(s) are following the administrativeprocess steps as well as the planning steps.


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1. Identification of Issues, Opportunities, and Constraints

An RMP should identify the issues, opportunities, and constraints that have the potential toinfluence land management and resource development. Land use planning should focuson resolving issues that arise over the use and management of Reclamation lands andassociated resources according to Reclamation policies and existing Project authorities. (Further guidance can be obtained by accessing Reclamation’s Worldwide Web page andfurther under “Reclamation Manuals” or the Project data website (<http://dataweb.usbr.gov/>) for specific authorities.) To accurately identify the issues, opportunities, andconstraints, a public involvement and internal scoping process should be initiated. Thisis usually accomplished by a formal public process as described in the NEPA regulations(refer to chapter II, “Phase II Administrative Actions Required During the Preparation of aResource Management Plan, 2. Preparation of a Public Involvement Plan,” for additionalinformation).

Issues, opportunities, and constraints should also be identified and discussed within the RMPto assist in developing the goals and objectives that are eventually established by the team. Ifpossible, the issues, opportunities, and constraints should be identified for each resource inthe study area. This will also help the ID team in finalizing the goals and objectives of theRMP. See attachment M, part I, for examples of goals and objectives formulated inresponse to identified issues for preparation of the Canyon Ferry Reservoir RMP/EA(Montana Area Office, Great Plains Region) and attachment M, part II, for examples ofgoals and objectives formulated in response to identified issues for preparation of the AgateLake RMP.

Issues.—A planning issue can be defined as an unrealized opportunity, an unresolvedconflict or problem, an effort to implement a new management program as a result of newinitiatives or laws and regulations, or a value being lost. The issues concerning the conflictingdemands for consumptive and nonconsumptive uses of Reclamation lands should beidentified in this planning step. Through a public involvement process, Reclamation shouldidentify as many public issues as possible from a wide variety of users. Reclamation resourcespecialists and managers should review internal policies and procedures to identify issues thatcould be resolved if an RMP were prepared and implemented. These issues are not generallyraised by the public in formal meetings. The identified opportunities and constraints set limitsfor an RMP and keep the team focused on producing a plan that resolves public and entityissues.

Opportunities.—Opportunities often exist that can provide solutions to the issues raisedexternally by the public and internally by Reclamation staff. Opportunities often exist toenhance, protect, and interpret the resources of a particular Reclamation area as well as to

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provide for a wide variety of recreation facilities and opportunities through partnerships withother Federal, Tribal/National, State, local, and private entities. (See attachment N forexamples of opportunities.)

Constraints.—Federal land management entities are constrained by their respectivelegislative authorities, budgets, personnel, current policies, and environmental limitations. When Project planning and developments are being considered, certain rules, laws, and E.O.sare triggered that may influence what management actions are proposed in the final RMP. Limiting factors—such as slopes, soils, wetlands, critical habitat, and migratory bird nestingsites—are environmental constraints that can influence future development. Carryingcapacity constraints—such as social, physical, environmental, and facility carryingcapacities—should also be taken into consideration during resource and land use planning.Water and mineral rights associated with land may also carry constraints.

2. Development of Planning Criteria

Planning criteria are short and concise statements that help establish the sideboards andparameters for development of the RMP and help highlight major areas of concern. Planningcriteria will assist the ID team members in formulating and selecting combinations of landuses and management actions that should be considered in the RMP. The criteria should bedocumented in the RMP as well as in the NEPA document. The different combinations ofland uses and management actions considered as being feasible in the RMP will eventually beused to assist in formulating alternatives that will then be analyzed in a NEPA document. Thedifferent combinations of land uses and management actions will be combined intoreasonable planning alternatives. Each one of the alternatives can be considered a separatedraft RMP. The planning criteria can be revised as the planning effort proceeds and as newinformation is made available or new issues are identified (attachment O lists possibleplanning criteria). Planning criteria are mechanisms for:

P Incorporating and documenting legal requirements

P Explaining to the public how the issues are going to be approached by the ID team

P Identifying sideboards of plan coverage

Closely related to planning criteria is the preliminary set of overall goals and objectives thatshould be established at the beginning of the planning process to guide the development ofthe RMP. Four examples of overall goals are those which would:


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P Determine the most appropriate uses of all Reclamation-administered land and waterareas within the study area, considering the use of adjacent lands

P Explore ways to enhance and protect natural, recreational, aesthetic, and culturalresources

P Identify long-term resource programs to address health and safety, fish and wildlife,and recreation

P Identify financially feasible opportunities or partnerships to assist in managing landand water areas within the study area

In addition, the objectives contained in Reclamation’s 2000 – 2005 Strategic Plan can beused to assist in guiding Reclamation personnel in the development of the RMP. The2000 – 2005 Strategic Plan objectives are listed in chapter I.

The planning criteria, preliminary objectives, 2000 – 2005 Strategic Plan objectives, and thegoals and objectives formulated by the ID team in response to the issues and concernsestablish the sideboards and parameters for the development of the RMP.

3. Inventory Data and Information Collection

During this planning process step, physical and biological resources should be inventoried. These include water, soils, vegetation, fish and wildlife, cultural, recreation, and visualresources, as well as ITAs and TCPs. Additional environmental factors that should beinventoried include those related to hydrology, the climate, air quality, social and economicfactors, environmental justice, transportation, land use, and noise.

The data collected should be sufficient to address the various issues and concerns and allowmanagers to make consistent land use decisions. In most instances, decisions to moveforward in the planning process can be made by using available information. However, it maybe prudent in some instances to initiate studies to collect information that can fill data gapsand, at the same time, build trust and confidence between the public and Reclamation. Whenextracting information from existing data, caution should be taken to ensure the accuracy,coverage, completeness, and current nature of such data.

Site-specific and regional data concerning each resource should be collected. The following isa partial list of potential sources of information and data.


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P Land acquisition records

P Soil surveys and land ownership maps

P NEPA environmental studies and reports

P Fish and wildlife inventories and reports

P Federal Emergency Management Agency flood plain maps

P Standing operating procedures

P Management agreements, Memoranda of Understanding (MOU), Memoranda ofAgreement (MOA), and repayment contracts

P State Comprehensive Outdoor Recreation Plans and regional planning and zoningstudies and reports

P Census information

P Existing GIS databases

P Federal, State, and Indian Tribes/Nations with whom Reclamation coordinates

P Studies and reports prepared by Reclamation (including planning reports [appraisal,feasibility, and definite plan levels of detail]), universities, and private consultants

P Programs and recommendations of conservation groups and other planning efforts,such as Partners-in-Flight and North American Waterfowl Management Plan

4. Analysis of Resources and Management Framework

Administration of the land and water areas and associated environmental resources within themanagement area usually requires a coordinated effort among several entities that may havevarying degrees of management responsibility. The existing resources should be analyzedand evaluated in terms of who may have management responsibility (e.g., BLM may haveresponsibility for wildland fire management and administering oil and gas activities or grazingon Project lands; the State game and fish department may have management responsibilityfor fish and wildlife; and the State parks department may have responsibility for enforcingboating activities on the water surface).


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When analyzing the management framework, the ID team should not have preconceivedideas of what the management alternatives may be for the management area. The IDteam should focus on an assessment of the existing condition and on the managementopportunities, constraints, and limitations that are related to the identified planningissues and management concerns for the management area before arriving at a preferredmanagement alternative.

An RMP is, therefore, slightly different than a NEPA document for three primary reasons:

(1) An RMP describes all the resources and environmental factors within themanagement area, while a NEPA document primarily describes the resourcesand environmental factors that may be impacted by a proposed action.

(2) The RMP describes, in detail, the preferred alternative documented in theaccompanying NEPA document, while a NEPA document alone analyzes theimpacts of one or more viable alternatives (other RMP alternatives that may havebeen evaluated and analyzed in the NEPA document are not described in the RMP;however, an RMP should clearly state that a reasonable number of RMP alternativeswere evaluated and that an EA/finding of no significant impact (FONSI) orEIS/Record of Decision was prepared before the RMP was finalized).

(3) An RMP is a planning document with built-in implementation and monitoring plans,while NEPA is a disclosure process relating to impacts of a selected action.

A typical RMP should describe the existing condition of all the resources and environ-mentalfactors within the management area, thereby establishing a baseline condition that can be usedto measure the progress and success of the management actions implemented.

5. Formulation of Alternatives

The basic goal in formulating alternatives is to identify various combinations of land uses andresource management practices that respond to the issues identified during the planningprocess. As discussed earlier under “Planning Process Steps, 2. Development of PlanningCriteria,” different combinations of land uses and Reclamation management actions willbecome the management alternatives that are evaluated to assist the ID team in determiningwhich alternative(s) will become the preferred alternative(s).

Both the RMP process and the NEPA process call for the consideration and evaluation of arange of reasonable alternatives to a proposed Federal action. The alternatives should meetthe purpose of and need for the proposal while disclosing environmental effects. In this case,


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the proposed Federal action would be the preparation and implementation of an RMP. TheRMP alternatives that are formulated should be described in detail and analyzed in the NEPAdocument before a preferred RMP alternative is selected. The analysis of the RMPalternatives in a NEPA document helps managers select an RMP that meets the needs of themanagement area. Following are some items to consider when formulating alternatives:

P There should be a logical relationship between the issues, concerns, opportunities andconstraints, and the formulation of alternatives.

P Each alternative studied and evaluated in detail should be considered a compre-hensiveland use plan.

P A No Action Alternative—the baseline against which to compare other alternatives—ismandatory under NEPA and is necessary under the RMP process.It should provide a detailed description of the management strategies, resourceconditions, and land use allocations, uses, and trends that would exist if an RMP werenot implemented (the “future condition” without an RMP).

P Each alternative, with the possible exception of the No Action Alternative, shouldaddress and resolve, in a different manner, the issues and concerns raised by the publicand Reclamation.

P Each alternative should be realistic and implementable within anticipated funding andstaffing levels. Alternative elements (management actions) may also suggest thatReclamation needs to seek additional authorities before implementation of specificitems. (It should be noted that those actions requiring additional authorities will not beimplemented without appropriate authority.)

6. Evaluation of Alternatives

To select the preferred RMP alternative (i.e., the best combinations of land uses andmanagement actions), a thorough evaluation and comparison of each alternative is needed. This is best achieved by completing an impact analysis according to the requirements set forthin the CEQ regulations for implementing the procedures of NEPA. Knowing theenvironmental consequences of implementing an RMP alternative will provide the RMP IDteam and Reclamation managers with the valuable information necessary to select a preferredmanagement plan. Examination of the RMP alternatives should be based on professionaljudgment and the experience of Reclamation staff specialists. Following are some items toconsider when evaluating RMP alternatives:


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P The resources should be analyzed for all alternatives to determine what impacts theRMP management actions will have on identified resources.

P To the extent possible, Reclamation should quantify impacts of each alternative on theresources that are analyzed; however, if quantitative estimates are not possible,qualitative estimates should be documented.

P The “No Action” RMP alternative is the basis of comparison for the “actionalternatives.”

P The depth of analysis should correspond to the scope and magnitude of the potentialimpacts.

P Analysis of cumulative effects is critical: the effects of all combinations of land usesand management actions in each respective alternative should be taken together withpast actions and other actions that will occur or are likely to occur within themanagement area.

P If implementation of an alternative may have a negative effect on a particular resource,proposed mitigation measures should be documented.

P As a general rule, the evaluation should not focus on causes, but rather should disclosethe effects.

P The alternatives should be presented to the public and other entities to solicitcomments. In other words, a preferred alternative should not be selected before itis presented to the public and other entities for review and comment.

P The length of public review should be based on area or regional office policy and thelevel and scope of the RMP and public concern.

7. Selection of Preferred Alternative(s)

Reclamation should select those combinations of land uses and management actions that are(1) consistent with existing policy, laws, Project purposes, and the RMP goals and objectivesthat were developed to resolve the identified issues; (2) implementable within the specifiedplanning period; (3) without serious conflicts; (4) within the environmental resourcelimitations; and (5) widely accepted by the public and entities. Following are some factors toconsider when selecting the preferred alternative:


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P The preferred RMP alternative may or may not be one of the original alternativesformulated by Reclamation.

P The preferred RMP alternative may consist of a mix of land uses and managementactions from any of the original alternatives that were analyzed in the NEPAdocument.

P If the preferred RMP alternative is different than one of the original alternativesanalyzed, preparers should make sure that an impact analysis is completed and thatcumulative effects and mitigation measures are documented for the new RMPalternative.

P The rationale for selecting the preferred alternative (and for not selecting others)should be documented (planning criteria discussed earlier can be used to justify theselection).

P Once the preferred RMP alternative is selected, it should be presented in a draft NEPAdocument to the public and entities for a thorough review before being finalized. (Note: The No Action Alternative may be selected as the preferred alternative if itmeets the purpose of and need for preparing the RMP.)

P As mentioned above, the length of public review of document(s) depends on area orregional office policy, the level and scope of the planning document, and the level ofpublic concern.

8. Preparation of a Final Resource Management Plan and NEPA Document

An RMP should describe the management framework proposed; needs, opportunities,and constraints; public and entity issues and concerns; Reclamation goals and objectives;specific and area-wide management directions and actions for the study area; and animplementation schedule. As an alternative to preparing an implementation schedule, officesmay consider a collaborative working group process to assist in identifying when certainmanagement actions identified in the RMP might be implemented. (See the following section,“9. Implementation and Monitoring of a Resource Management Plan,” for future informationconcerning formation of a working group).

Once pertinent comments on the draft RMP have been considered by Reclamation andincorporated into the NEPA document, if appropriate, the preferred alternative shouldbe developed into a final RMP. If the RMP and NEPA documents are to be separatedocuments, the NEPA document should also be finalized to accompany the final RMP


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during distribution. If the RMP and NEPA document are to be integrated, then the documentshould be finalized and distributed together as one document. When preparing the finalRMP, the following items should be considered:

P The final RMP should be the RMP alternative selected in the NEPA compliancedocument.

P The impacts associated with implementing the RMP management actions should bedisclosed in the NEPA document.

P Reclamation should be able to implement the management actions within theidentified planning period.

P There should be a reasonable opportunity to fund the management actions identified inthe final RMP.

P Each of the planning steps has a specific purpose; therefore, information pertaining toeach step should be incorporated directly into the RMP, if so desired.

P The final RMP should provide a history and baseline condition for the differentresources so that the progress and success of the proposed management actions can bemeasured.

P If funding is available, cost estimates of the proposed actions should be considered.

9. Implementation and Monitoring of a Resource Management Plan

As the lead entity with jurisdiction of the lands covered by an RMP, the area office hasprimary responsibility for implementation and monitoring of the RMP. In manyinstances, however, other entities are also involved with the management of Reclamationlands. When other entities are involved, there should be a commitment by all of the entities toseek financial, program, and staffing resources necessary to implement the proposedmanagement actions. This cooperative relationship should be established through a MOA orMOU or some other formal/contractual document. Successful implementation andmonitoring of an RMP will rely on the cooperation of all entities involved with managementof the lands covered under the RMP as well as those who use the facilities and lands for avariety of purposes.

In some instances, it may be appropriate for Project beneficiaries, such as water districts,power users, or non-Federal managing partners such as State parks or fish and wildlife


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departments, to share in the cost of implementation and monitoring. Cost-sharearrangements should be governed by contract language, laws, regulations, andpolicy.

When appropriate and practicable in implementing RMPs, Reclamation should conductcollaborative inventory, monitoring, management, research, and information study andexchange with other entities pertaining to wildlife conservation, such as conservation ofmigratory birds. Any data gathered that would benefit breeding, migrating, and winteringpopulations and habitats should be shared with national data repositories, such as BreedingBird Survey, BBird, and MAPS for migratory birds.

To successfully implement the management actions in an RMP, a realistic implementationschedule should be developed and outlined in the RMP. Because of the uncertainty offunding from fiscal year to fiscal year, it may be prudent that management actions be phasedin over a specified period of time as opposed to identifying a certain year in which an actionshould take place. As mentioned above in “8. Preparation of a Final Resource ManagementPlan and NEPA Document,” an alternative for preparing an implementation schedule could bethe formation of a collaborative working group to determine timeframes for implementingcertain management actions. Reclamation would serve as the lead agency and collaboratewith appropriate stakeholders on a periodic basis to discuss issues, solutions, funding sources,and implementation priorities of the management actions addressed in the RMP. (See figureIII-2 for an example of the working group process.) The development of annual Work Plansshould include funding requests to accomplish the proposed RMP management actions. Some factors that may influence the timing (priority) of when a management action is to beinitiated should be based on whether the action:

P Is procedural or technical (e.g., preparing agreements [former] or developing specificplans [latter])

P Needs to address public health and safety concerns

P Brings Reclamation into compliance with existing laws, regulations, and E.O.s

P Is required to prevent resource damage or protect wildlife species or habitats

P Requires large capital investments, such as facility or trail development

P Requires the assistance or support of other entities


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Bureau of Reclamation andworking group members

Periodicmeetings

Discuss issues, concerns, and solutions Identify funding sources

Review current year budget

Proceed with specific managementactions for current year

Figure III-2.—Working group process.

A good monitoring program:

P Measures the effectiveness of implementation strategies

P Flags inadequacies

P Ensures movement toward the RMP goals and objectives

P Ensures a good working relationship with cooperating entities and the public

P Identifies the need for amendments or revisions

For additional information concerning implementation and monitoring of RMPs, see chapter II, “Phase III Post-Administrative Actions Required After Resource ManagementPlan Completion, 3. Resource Management Plan Implementation” and “4. ResourceManagement Plan Monitoring Program.” (Note: Once monitoring of the RMP begins, results


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should be documented in the Recreation Land Management Compliance Reviews or otherreviews, as appropriate.)

10. Amendments and Revisions to a Resource Management Plan

Amendments and revisions are the key to keeping an RMP current. An RMP shouldstate that the decision to amend or revise the RMP will occur, as necessary, based on thescope and significance of the needed adjustment. An amendment would generally involveonly one or two planning issues but is necessary when a proposed action does not conformwith the RMP and Reclamation should formally document an amendment and providewritten notification to concerned Federal, State, Tribal/National, and local agencies and otherinvolved entities and individuals. Reclamation offices have the discretion to determine if aneeded change is an amendment or simply routine maintenance (and official documentationand notification is not necessary). Routine maintenance may include posting newinformation, refining an analysis, or making minor changes in a management action.

Reclamation should review each RMP before the end of its planning life to determineif it has become outdated or otherwise obsolete. If the RMP is outdated or obsolete,Reclamation should prepare a comprehensively revised RMP following this guidebook.A list of factors that could trigger an amendment or a revision in an RMP may include:

P Availability of new data

P Readjustments that become necessary because of changes in social, physical,environmental, or economic conditions

P Realignments needed to accommodate changes that occur during implementationand/or monitoring of the RMP

P Unforeseen uses requiring authorization of permits, contracts, and cooperativeagreements that are not consistent with or addressed in the RMP

NEPA Compliance Concurrent with the Planning Process

NEPA requires that a detailed report be prepared on the environmental effects of a proposedmajor Federal action that may have significant effects on the human environment. TheFederal action in this case is the preparation and implementation of an RMP. The regulationsimplementing NEPA provide several procedural avenues to determine if or how thisrequirement applies to a particular Federal action. Some activities may not require NEPA;these include the continuation of normal operations or situations (and no Federal decision is


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involved in the action). CEs exclude categories of Federal actions from further NEPAdocumentation because the action has been shown not to have a significant effect on theenvironment.

An RMP will, however, likely be accompanied by an EA or EIS. Reclamation applies NEPAto actions when it is required (below) and may use NEPA procedures when the informationwould be helpful in the decisionmaking process. Reclamation’s directives and guidance onimplementing NEPA are contained in Reclamation’s NEPA Handbook. When questions ariseconcerning NEPA and the development of RMPs, it is recommended that the handbook beused and area and regional office NEPA staff be consulted.

It is important to remember that the NEPA process is being conducted concurrently with theRMP planning process (see figure III-3 to see how the planning process and the NEPAprocess fit together). When an EA or EIS is being prepared for an RMP, it is necessary todevelop the RMP and EA or EIS concurrently. When practicable, the two documents (the EA or EIS and the RMP) can be combined into one document. If the RMP and the EAor EIS are combined, it is important for Reclamation to ensure that all the proceduralrequirements of NEPA are incorporated into the document and that all the planning processsteps are thoroughly discussed in the combined document. It should be left to the area officeor regional policy to decide if the RMP and NEPA documents should be combined or if thedocuments should be developed separately (see attachment P, part I , for examples of aTable of Contents for stand-alone RMP documents and attachment P, part II, for anexample of a Table of Contents for an RMP/NEPA document that has been integrated). (Foran additional example, see the RMP outline presented in chapter IV.)

The NEPA report for the RMP would go through the following steps:

P Identify the purpose of and need for the action

P Inventory resources

P Analyze the alternatives

P Identify impacts and mitigation of impacts

P Make a final NEPA decision (i.e., make a selection as to which NEPA RMP alternativewill become the RMP that is implemented)


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Figure III-3.—Planning schedule process.


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Figure III-4.—CE process flowchart (NEPA Handbook).

CEs address the effects of actions that have been determined to be so insignificant that noNEPA analysis is required (see figure III-4). These actions are defined in the DM and can befound in Reclamation’s NEPA Handbook. The two applicable lists of CEs are thedepartmental list (DM Chapter 2, appendix 1), which apply to all DOI entities, and theReclamation-specific list (DM Chapter 6, appendix 9).

Reclamation has developed a CE checklist to assist in the proper application of Reclamation-specific CEs. Although not mandatory, this checklist should be used when a Reclamation-specific CE is applicable, but it is not required when a departmental CE is applicable (note thatit may still be advisable to use the checklist for departmental Ces). CEs simply provide amethod of documenting that a NEPA review of a proposed action took place and thatReclamation was able to determine there would be no significant impacts to any resource ofconcern.

CEs that may be applicable to RMPs include Departmental Exclusion 1.10 and ReclamationExclusion 9.4C4. Departmental Exclusion 1.10 addresses policies or directives that areadministrative or that are too broad, speculative, or conjectural for meaningful analysis. Reclamation Exclusion 9.4C4 addresses approval on land management plans whenimplementation will only result in minor construction activities and minor changes inoperation and maintenance (O&M) activities. The applicability of these, or any other CEs,depends on the content of any particular draft RMP. If the RMP reflects any real changes inoperations, facilities, or management that affect environmental resources, it is highly unlikelythat a CE would apply.


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The EIS is a detailed document that displays the environmental effects of a proposed actionand reasonable alternatives. An EIS needs only be prepared if there are potentially significanteffects on the environment. This leaves a large grey area between activities excluded by a CEand activities where potentially significant effects are obvious and an EIS is determinedappropriate from the beginning. It is to address this grey area that EAs are defined in theregulations. An EA is intended to be a brief document that concludes that no significantimpacts exist (documented in a FONSI) or that significant impacts may exist, triggering thepreparation of an EIS. Guidance on preparation of an EA can be found in Reclamation’sNEPA Handbook (see figure III-5).

An EIS is normally prepared for a major Federal action that significantly affects the quality ofthe human environment. However, the final determination to prepare an EIS could be theresult of many factors, including the level of controversy, environmental considerations,Project history, and the language in the existing regulations. Procedural requirements for anEIS are discussed in detail in Reclamation’s NEPA Handbook (see figure III-6).

Public involvement and scoping are required for RMPs. The PIP for an RMP is furtherdiscussed in chapter II, “Phase II Administrative Actions Required During the Preparation ofa Resource Management Plan, 2. Preparation of a Public Involvement Plan.”


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Figure III-5.—EA process flowchart (NEPA Handbook).


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Figure III-6.—EIS process flowchart (NEPA Handbook).

ChapterChapter

IVIV Components of a Resource Management PlanComponents of a Resource Management Plan

Introduction

An RMP is a repository of pertinent information that integrates and displays the manage-mentaction(s)/direction(s), implementation strategies and monitoring procedures, as well as otherplan decisions that apply to an area of land administered by Reclamation. The RMP shouldalso contain information that directly relates to decisions made and information collected as aresult of following the major steps in Reclamation’s planning process (e.g., identification ofissues, opportunities and constraints, resource inventory, and the formulation of goals andobjectives, as discussed further in chapter III). The RMP also contains maps and attachmentsand other information relevant to the way in which the area is to be managed. The RMP is apublic document and a vision for the future that is clear, understandable, and readily availablefor Reclamation staff to follow and implement.

To provide consistency and uniformity in the preparation of RMP documents, it isrecommended that each respective RMP follow a suggested format that contains certaincomponents, some of which should be considered essential. However, since the guidanceprovided in this guidebook is discretionary, individual offices have the flexibility to modifythe format of the RMP and select the components appropriate for their individual RMPs.It is further recommended that deviation from the suggested format be limited to only themain chapters of the RMP. In other words, local offices have the flexibility to format themain chapters of the RMP in a variety of ways as long as certain essential componentsare addressed somewhere in the main body of the RMP document. It is important toremember that the essential components of the RMP should always be in a logical order. Togive the user of this guidebook a good idea of the possible ways to format and present theinformation contained in an RMP, attachment P contains four different format examples thatarea offices have used to structure an RMP. (Note: The format examples in attachment P,part I , are represented by three different Table of Contents for stand-alone RMP documentswhile one example, attachment P, part II, is a Table of Contents for an integratedRMP/NEPA document.)

Offices responsible for preparing RMPs should consider the need for technical writing oreditorial assistance. Such assistance can be invaluable in producing superior documents. Potential sources of assistance may include area office, regional office, or TSC staff,depending on the specific resources available. The TSC (Denver) can provide expertise (on acontract basis) through its Technical Communications Group (D-8011).

IV-2Resource Management Plan Guidebook

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Standard Format

Except for the essential components to be included in the main chapters of an RMP, it isrecommended that the components listed below appear in the RMP document in theorder they are listed below. Some optional components are also identified. The essentialcomponents to be included in the main chapters of the RMP are listed in number 11 andappear in no particular order or preference. Following is the suggested format of thecomponents of an RMP:

1. Cover2. Inside Cover3. RMP Document Guide – Schematic that serves as a reference tool to assist the reader

in locating certain information in the RMP (optional)4. Finding of No Significant Impact (optional)5. Title page6. Inside Title Page7. Preface (optional)8. Executive Summary (optional)9. Abbreviations and Acronyms10. Table of Contents11. Essential Components Included in a Resource Management Plan (A through Q should

be grouped and arranged in logical order)A. Introduction B. Purpose StatementC. AuthorityD. Organization and Scope of an RMP DocumentE. Project HistoryF. Location/SettingG. Overview of Public Involvement EffortsH. Overview of Consultation EffortsI. Management FrameworkJ. Planning ProcessK Opportunities and ConstraintsL. Issues and Issue CategoriesM. Existing Resource Inventory/Existing ConditionN. Goals and ObjectivesO. Desired Future ConditionP. Management Action(s)/Direction(s)Q. Implementation Procedures (monitoring, standards and guides, and plan

revision or amendment)12. List of Preparers13. List of References/Bibliography14. Glossary of Terms15. Attachments/Appendices

IV-3Chapter IV – Components of an RMP

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Standard Format Components Included in a ResourceManagement Plan

The following information describes each of the components that should be presented in anRMP. The components are listed in the format order in which they are cited above. To aidthe user of this guidebook and to facilitate consistency in the preparation of RMP documents,examples with information to be included in certain components of actual RMPs have beenprovided. In other instances, a brief narrative description is used to explain what informationshould/could be addressed within each component. Following are the components of anRMP and suggested information that could be included:

1. Cover

The front cover of all Reclamation RMPs should have the following information:

P The RMP name, such as Agate Lake Resource Management Plan, in the upper half ofthe page in large bold type.

P The date the RMP was published below the RMP name (include at least the month andyear, such as “September 2000”).

P “United States Department of the Interior” preferably located in the lower left-handcorner of the cover, with the DOI logo to the right.

P “Bureau of Reclamation” located below “United States Department of the Interior,”with the Reclamation logo to the right.

P The name of the region in which the RMP is being prepared below “Bureau ofReclamation.”

P The name of the area office where the RMP is being administered below the name ofthe region.

P The names of the cooperating entities listed below the area office name, with theirlogos to the right.

P Other graphics, backgrounds, and color on the cover may be used at the discretion ofthe office preparing the RMP.


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2. Inside Cover

The inside cover (back of the front cover) should contain the mission statements and anycontract information associated with the preparation of the RMP. The information should belisted as follows:

P Mission statement of the Department of the Interior

Department of the Interior

“The mission of the Department of the Interior is to protect and provideaccess to our Nation’s natural and cultural heritage and honor our trustresponsibilities to Indian tribes and our commitments to islandcommunities.”

P Mission statement of the Bureau of Reclamation

Bureau of Reclamation

“The mission of the Bureau of Reclamation is to manage, develop, andprotect water and related resources in an environmentally and economicallysound manner in the interest of the American public.”

P Mission statements of the managing entities

Example: Jackson County Parks

“To protect Jackson County’s recreational resources and provide a qualityCounty Park system that meets recreation needs and provides recreationopportunities to the citizens and visitors of JacksonCounty.”

P If prepared by a consultant, the name, mailing address, and government contractnumber should be listed.

Example: “This Resource Management Plan was prepared by the Bear WestConsulting Team in cooperation with, and for, the Department of theInterior, Bureau of Reclamation, Upper Colorado Region, under ContractNo. 1425-2-CA-40-12580, delivery order 002, entitled, Preparation ofResource Management Planning for Deer Creek.”

See the figures on the following page for examples of a cover and an inside cover.


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(a) Example of a cover. (b) Example of an inside cover.


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3. RMP Document Guide (Optional)

A schematic that serves as a reference tool to assist the reader in locating certain informationin the RMP could be provided. An example of a document guide is included as attachmentQ . (Note: This example is taken from an integrated RMP/NEPA document.)

4. Finding of No Significant Impact (Optional)

If a FONSI for the Federal action of preparing an RMP is signed by the responsibleReclamation manager, a copy of the FONSI may be included in the final RMP document. This will allow the reader to see a brief discussion of why the impacts described and analyzedin the concurrent EA were not significant enough to prepare an EIS. Otherwise, the readerwould have to go directly to the EA to locate this type of information. An alternative forincluding a copy of the FONSI in the RMP document would be to discuss briefly the NEPAprocess and associated impacts somewhere in the main body of the RMP or in an ExecutiveSummary.

5. Title Page

The next page (title page) of an RMP should be exactly like the cover in terms of information,but it should not display the DOI, Reclamation, or a managing partner'slogos or symbols.

6. Inside Title Page

The next page (back of the title page) is similar to the cover and title page, but contains thename of the Project and its location. Following is an example of what should be on the backof the title page:

P The RMP name, such as Agate Lake Resource Management Plan. This should at thetop of the page, followed in the lower left by:

P The name of the Project, such as “Rogue River Basin Project,” with the name of the managing office, including city and State, such as “Talent Division, Medford, Oregon,”followed by:

P “United States Department of the Interior,” and “Bureau of Reclamation,” with thename of the regional office, including city and State, such as “Pacific NorthwestRegion, Boise, Idaho,” followed by:


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P If you wish, the name, mailing address, and phone number of the area office, includingcity and State, such as “Lower Columbia Area Office, Portland, Oregon,” followed by:

P If appropriate, “In cooperation with” and the name of the cooperating entities,including city and State, such as “Jackson County Parks, Medford, Oregon,” followedby:

P Date (include at least month and year).

See the figures on the following page for examples of a title page and back of a title page.

7. Preface (Optional)

A Preface could be provided that would acknowledge certain groups, individuals, or entitiesthat provided valuable input into the development of the RMP. The preface could also beused to briefly state the purpose of the RMP or to articulate why some action was notaddressed (e.g., the action of transferring lease lots within the management area is beingcovered by a separate NEPA process). (See attachment R for an example of a brief Prefacefrom an integrated RMP/NEPA document.)

8. Executive Summary (Optional)

An Executive Summary could be provided that outlines the sideboards for development ofthe RMP and summarizes the RMP planning process and the contents of the RMP. Thiswould give the reader a brief narrative description of what is contained in the RMP(i.e., critical issues, management action(s)/direction(s), public involvement and consultationefforts, and others).

9. Abbreviations and Acronyms

A list of abbreviations and acronyms should be included in the RMP. Following is anexample of a list of abbreviations and acronyms:

Abbreviations and Acronyms

BIA Bureau of Indian AffairsBLM Bureau of Land Management


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(c) Example of a title page. (d) Example of an inside title page.


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cfs cubic feet per secondDistrict Rogue River Valley Irrigation DistrictEA environmental assessmentESA Endangered Species ActFONSI finding of no significant impactFS U.S. Forest ServiceHB House billITAs Indian Trust AssetsLWCF Land and Water Conservation Fundmg/L milligrams per literNEPA National Environmental Policy ActNPS National Park ServiceNWI National Wetlands InventoryO&M operation and maintenanceOHV off-highway vehicleReclamation Bureau of ReclamationRMP Resource Management PlanSCORP State Comprehensive Outdoor Recreation PlanService Fish and Wildlife ServiceSHPO State Historic Preservation OfficerStat. StatuteTCPs traditional cultural propertiesµg/L micrograms per literµs/cm microsiemens per centimeter (units used to measure

conductivity of an aqueous solution)EF degrees Fahrenheit

10. Table of Contents

The next page (or page after the abbreviations) of an RMP should be a Table of Contents.Headings can be added for tables, figures, photographs, and maps, as necessary andappropriate, and a heading can be included to indicate attachments/appendices, followed bytheir respective names and page numbers.

11. Essential Components Included in a Resource Management Plan

The following components should be considered essential and included in the main body ofan RMP. The below-mentioned components are not necessarily chapters within the RMPdocument. As stated earlier, the location of the essential components that should be includedin the main chapters of the RMP can be determined by the local offices. Several of the


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essential components can be combined to form an individual chapter (e.g., the introduction,purpose statement, authority, organization and scope of the RMP, project history, andlocation/setting essential components can be combined to form the intro-ductory chapter ofthe RMP). A suggestion on ways to combine certain components in the same RMP chapter,when appropriate, is described below. (Refer to attachment M, parts I and II, for exampleson ways in which the goals and objectives, issues and issue categories, and the managementaction essential components could be combined in the same chapter. Also refer to the fourtables of contents examples in attachment P, parts I and II, for further guidance on howcertain components may be combined into a specific chapter in the RMP.)

A. Introduction.—This component of the RMP should provide a brief but conciseoverview of the document. It should state that the RMP is to provide managementaction(s)/direction(s) that protect the rights of entities based on existing grants, contracts, andlegislation, while identifying and scheduling measures to achieve a desired future condition. Itshould state that the RMP establishes management action(s)/direction(s), both area-wide andspecific, in the form of goals, objectives, standards, and guidelines, and that the RMP includesmonitoring and evaluation requirements to ensure conformance. It should indicate theplanning period on which the RMP was based and that it will be updated or revised, asappropriate, over time. This component is usually part of the introductory chapter of the mainbody of the RMP and should be accompanied by a location map showing the location of themanagement area within the State/region the RMP is being prepared. (Refer to the locationmap in attachment S for an example.)

B. Purpose Statement.—This component should state the reason(s) for preparing anRMP and indicate that the RMP is to guide future land resources management to ensure landsand waters are maintained and protected for authorized Project purposes. It should also statethat the RMP establishes consistent management and guidance and ensures that activities oruses are in compliance with applicable Federal, State, and local laws, regulations, and policies. This component is most often included in the introductory chapter of the RMP.

C. Authority.—This component should include authorities to prepare the RMP/EA,Project authorities, and others, as appropriate. This should also include applicable legislation,such as P.L. 89-72 (as amended), or other specific laws that address the management of lands,how they are to be managed, and who is authorized to manage the lands. This component ismost often included in the introductory chapter of the RMP.


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D. Organization and Scope of an RMP Document.—This component should inform thereader of the way the document is divided into areas or chapters. This component is mostoften included in the introductory chapter of the RMP. Following is an example of how thepreparer of an RMP might address this component:

P Chapter I provides introductory information about the area and the RMP, describes thepurposes of and authorization for the RMP, describes the location of the RMP studyarea, and gives a brief history of the management area.

P Chapter II provides an overview of Reclamation’s planning process, summarizes theissues, identifies the issue categories established for the management area, andprovides an overview of public involvement activities and coordination efforts withother agencies and Indian Tribes/Nations.

P Chapter III describes the existing resources and environmental factors within the RMPstudy area, identifies the other entities that may have involvement in the study area(management framework), and identifies opportunities and constraints.

P Chapter IV describes the future condition, sets forth the management action(s)/direction(s) outlined for the management area, and identifies the goals and objectivesestablished to meet the identified issues.

P Chapter V establishes the implementation schedule of the RMP, including actions,budgets, responsible entity(ies), and appropriate timeframes.

P Chapter VI identifies monitoring procedures and the standards and guides used tomonitor the implementation actions.

P Information following the chapters includes a List of Preparers, including the ID team,entity representatives, and consultants; References/Bibliography; and a Glossary. Attachments include reports, agreements, tables, maps, figures, photos, and others, asneeded.

E. Project History.—This component should briefly explain the history of the manage-ment area and include the congressional authorization for the Project, description of theProject, purposes for which the Project was authorized (i.e., irrigation, flood control, fisheries,recreation, and other), dates when the Project was begun and completed, and repaymententity(ies). National, regional, or local interagency MOUs or MOAs for management of lands and resources could be addressed along with policy letters from the Commissioner of Reclamation, regional office, or area office. Additional information on the history of the area may be added, as appropriate. Many Project histories have been completed and are


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available from the History Program staff in the Office of Policy (D-5300) or through the“Data Web” link on Reclamation’s Web site. This component is most often included inthe introductory chapter of the RMP.

F. Location/Setting.—This component should state the location on a river(s) ortributary(ies); the county, State, township, and range in which the management area islocated; and the distance and direction from cities, towns, National Forests, parks, mountainranges, Indian reservations, and other major landmarks. This component should include amap that outlines the management area boundary and is most often included in theintroductory chapter of the RMP. (See attachment S for an example of study/ managementarea maps.)

G. Overview of Public Involvement Efforts.—This component should list the parts ofthe public involvement plan that were implemented, including meetings with managingentities, affected jurisdictions, users, and area-wide special interest groups; general publicscoping, and any surveys and mailings such as the distribution of news releases. The date thatthe public process was begun should be mentioned along with the number of public meetingsand the number of attendees at each meeting. This component is often included in theintroductory chapter or in the same chapter that describes the planning process.

H. Overview of Consultation Efforts.—This component should include a discussion ofthe consultation efforts that occurred during the planning process. The discussion shouldinclude both formal and informal consultation efforts that may have been initiated withentities such as the FWS, NOAA Fisheries, and Indian Tribes/Nations. Dates that letters weremailed to certain entities, meeting dates, results of meetings, and other findings should bedocumented in the RMP. This component is often included in the introductory chapter or inthe same chapter that describes the planning process.

I. Management Framework.—This component should include important informationpertaining to all parties that manage or would be interested in and eligible to manage throughcontracts, agreements, MOUs, O&M agreements, repayment contracts, or Tribal/Nationalinterests; by virtue of resources managed by State or Federal statute (i.e., boating, hunting,wildlife management, or wetlands); and/or by any individuals or organizations that holdlicense agreements, concessions, and permits on the lands covered by the RMP. Informationpertaining to managing entities that do not manage through an agreement, but managepursuant to existing laws and regulations, such as the FWS or State game and fish and parksdepartments, should be provided. The management framework component could be includedin the land use section of the resource inventory component, a separate chapter in the mainbody of the RMP, or part of the introductory chapter.


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1 Carrying capacity can be described as the ability of a resource to accommodate a user population ata reasonable threshold without the user population negatively affecting the resource sustainability and more specifically asfollows: Environmental carrying capacity—the effects that a level of recreation use will have on resources, such asvegetation, fish, wildlife, soils, water, and air; social carrying capacity—the impacts that resource users have on oneanother; physical carrying capacity—the area that is available to a recreationist for a specific recreation activity; facilitycarrying capacity—the ability of an existing facility to accommodate the current level of recreation use.

J. Planning Process.—This component should include a brief narrative overview ofthe planning and NEPA processes used to develop, analyze, and select the preferred RMPalternative. It is not enough to simply show the reader of an RMP a schematic that representsthe planning or NEPA process and the way in which they are related. It is more importantthat the reader understand why certain decisions were made. As an example, the reader maywant to know that a critical issue raised at a public meeting resulted in the formulation of agoal and associated objectives by an ID team and that the objectives were transformed intomanagement action(s)/direction(s) that would be implemented at some point in the future. The planning process component is likely to appear in the same chapter that first presents asummary of the issues, an explanation of the issue categories, and an overview of the publicinvolvement and consultation efforts. (Refer to chapter III for further planning and NEPAprocess information.)

K. Opportunities and Constraints.—During the planning process, certain opportunitiesand constraints should be identified by the ID team and documented in the RMP. Thiscomponent of the RMP should contain a discussion of the opportunities and constraints thataffect Reclamation’s ability to manage the area covered by an RMP. If possible,the opportunities and constraints should be identified for each of the resources within themanagement area. An environmental constraints map showing critical habitat, steep slopes,100-year flood plains, wetlands, and other features could be included to supplement thiscomponent. (Refer to the Environmental Constraints map in attachment S for an exampleand see attachment N for examples of opportunities that may be available.)

Opportunities and constraints in the management area can be categorized as follows:

P Legal – Those that address the laws and authorities that pertain to a management areaand the opportunities and constraints they establish, including sources of funding,authorization for non-Federal partners to manage, water quality constraints, andpriority uses of resources for water delivery, flood control, recreation, wildlife, andothers (i.e., real property rights—water, mineral, easements, etc.).

P Carrying capacity1 — If enough information is known, environmental, social,physical, and facility carrying capacity and potential thresholds should be addressed inthis


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component. Since Reclamation’s goal is proper stewardship of Federal land, it isappropriate to set a limit on resource use that can be sustained without adverselyaffecting the resource beyond an acceptable level.

P Environmental – This includes environmental factors that establish opportunities or constraints: soils, topography (steep or gentle slopes), flat-water surface area,navigable rivers, wetlands, wildlife, cultural resources, historical resources, endangeredspecies, water quality, and others.

L. Issues and Issue Categories.—During public involvement and internal scoping, avariety of issues will be identified. This component should document the issues. It issuggested that similar issues be grouped into issue categories to facilitate the formulation ofgoals and objectives and ultimately the establishment of management action(s)/direction(s)that will address each issue category. Following are several examples of issue categories thatcould be created into which similar issues could be grouped:

P Partnerships – These issues deal with the management of certain resource programswithin the management area by entities such as water user organizations, IndianTribes/Nations, and State wildlife and recreation departments.

P Water resources – These include water quality and water quantity issues related todifferent land uses and their effects on natural resources, recreational use, and Projectpurposes.

P Recreation and visual resources – These issues relate to the relationship betweenrecreation and other land uses, potential conflict among different types of users andnatural resources, concerns of dispersed and developed recreation uses with existingmanagement, peak use concerns for public safety and its resource impacts, and scenicqualities of the area that are important to the overall recreation experience.

P Natural and cultural resources – It is important to identify issues relating to thevegetation, wildlife (including migratory birds), fisheries, threatened and endangeredspecies, cultural, historic, and paleontological resources within the management area. Issues may relate to management, seasonal conflicts, conservation measures, grazingpractices, user conflicts, noxious weeds, pests, and others.

P Health and safety – These issues pertain to the posting of rules and regulationsgoverning the use of the management area; providing a safe, healthy, and enjoyableenvironment and experience for the visiting public; ensuring safe and usable facilities;and providing an acceptable level of law enforcement.


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P Public information – These issues pertain to providing a variety of public informationabout conditions at the management area (i.e., reservoir elevations, usability of boatramps, and others) and providing through different media (e.g., internet, brochures,radio, maps, and pamphlets) information about the opportunities that may beavailable.

P Land management – This broad area covers all land management action(s)/direction(s), such as trespass, adjacent land uses, utilities, use authorizations, roads,trails, fencing, and uncontrolled access.

The issue categories mentioned above may vary depending on the types and quantity ofissues identified. For example, if the management area contains numerous Projectfacilities—such as canals, power substations, borrow areas, and others, that may conflict withthe public’s desire to use the land for other purposes—it may be prudent to establish aseparate issue category entitled, “Project Facilities.” Then, the issues related to this categoryand Reclamation’s management action(s)/direction(s) addressing those issues can be easilyidentified by Reclamation personnel.

P Project facilities – These issues cover existing Project facilities and purposes withinthe management area that need to be protected or otherwise addressed. Security ofProject facilities should also be addressed.

A summary of the issues and the issue categories will likely appear in the same chapter thatexplains the planning process. In another chapter of the RMP, the issue categories are likelyto be mentioned again along with the goals, objectives, and management action(s)/direction(s) to show the direct relationship.

M. Existing Resource Inventory/Existing Condition.—This component should providea complete (to the extent possible) description of the existing physical, biological, andsocioeconomic conditions of the management area. This should provide the baseline fordeveloping the RMP, monitoring resources, and measuring successful implementation of theRMP. This includes all of the important environmental and cultural data that shouldbe collected and/or compiled in the RMP document for evaluating impacts in the NEPAcompliance document and for future reference. (Note: A summarized version of thiscomponent should appear in the “Affected Environment” section of the NEPA document.)

Refer to attachment T for examples of resources and resource information that should beaddressed in the RMP.


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N. Goals and Objectives.—Goals and objectives should be established by the ID team toaddress the issues and issue categories mentioned above. The goals should be expressed ingeneral terms and should describe a desired condition to be achieved within the planning lifeof the RMP. The objectives are brief statements that describe a broad-based strategy. Thesegoals and objectives should be presented in the RMP so that the public can easily see howtheir issues were addressed. The goals and objectives are most often discussed with the issuecategories and management action(s)/direction(s) components and appear in the same chapterof the RMP. Following are several examples of goals that could be established for differentissue categories. (Refer to attachment M, parts I and II, for examples of ways to presentthe goals and objectives. Note: attachment M, part II, also documents the specificmanagement action(s)/direction(s) that were established to accomplish the goal andobjectives.)

P Partnerships – Goals in this area could include working with, maintaining, supporting,adding, pursuing, discontinuing, and improving partnerships with water users and local,State, Tribal/National, and Federal entities, and special interest groups, such as resourceconservation organizations, to achieve a stated goal for the management area.

P Water resources – Goals in this area could include protecting water integrity,controlling pollution, and supporting uses and programs that enhance stated goals forthe management area.

P Recreation and visual resources – Goals in this area could include expanding, main-taining, limiting, improving, managing, developing, or rehabilitating recreationfacilities; providing accessibility opportunities; and evaluating impacts of recreationuse within the management area.

P Natural and cultural resources – Goals in this area could include compliance withlaws and Executive orders and protection, improvement and enhancement for wildlife,wetlands, fisheries, cultural, historic, paleontological, vegetation, soils, and noise andair quality resources within the management area.

P Health and safety – Goals in this area could include providing a safe and healthyenvironment for visitors, increasing public awareness regarding safety and security,providing signs to warn visitors of possible hazards, and posting rules and regulations.

P Public information – Goals in this area could include providing visitor informationthrough interpretive media, newsletters, or maps, etc., and providing visitor servicessuch as visitor centers or resource programs such as wildlife observation andinterpretive programs.


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P Land management – Goals in this area could include locating, posting, fencing,closing, opening, permitting, leasing, and licensing lands to ensure appropriate andcompatible land uses, resource protection, user safety, disposal and acquisition,trespass resolution, removal of abandoned personal property, and avoidance ofconflicts within the management area.

P Project facilities – Goals in this area could include protecting Project facilities andpurposes, eliminating conflicts, and fencing and signing of facilities for securitypurposes.

O. Desired Future Condition.—This component is a short narrative of what the futureof the management area should be as a result of implementing the RMP. It may be toimprove coordination and cooperation among entities; reduce water pollution; optimize,expand, or limit recreation use; develop, remove, expand, or rehabilitate recreation facilities;improve interpretation and education opportunities; achieve sustainable vegetation andwildlife levels; expand, enhance, or protect wetlands; improve fisheries; limit utility corridorsto identified areas; or to develop mineral resources in an environ-mentally sensitive manner. See attachment U for an example of a Desired Future Condition Statement.

P. Management Action(s)/Direction(s).—This component provides managementaction(s)/direction(s) for the management area in response to land use requests, public issues,and management concerns. As recommended earlier, the goals and objectives are typicallydisplayed with the applicable management action(s)/direction(s) component. To assist the IDteam members in writing this component, each member should follow the guidance providedin the Reclamation manuals to determine how the variety of resource programs are or shouldbe managed. Implementation of the management action(s)/ direction(s) should result inattaining the goals and objectives of the management area. All uses and activities of themanagement area, including permits, contracts, and other instruments, should be consistentwith the following:

P Management area (area-wide) management action(s)/direction(s) – These are overall,general requirements that equally apply to the entire management area.

P Specific area management action(s)/direction(s) – These are requirements that onlyapply to a specific area identified within the management area and are unique to thatarea.

It is recommended that the area-wide management action(s)/direction(s) be listed firstand specific area management action(s)/direction(s) second. The management


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action(s)/direction(s) can be written in a narrative or table format. As stated earlier, themanagement action(s)/direction(s) are consistent with the goals and objectives and the issuecategory essential components to allow the public to easily identify how the identified issueswere addressed.

Many of the issues identified from internal scoping and public involvement are likely to besimilar from one management area to another; therefore, the goals and objectives andassociated management action(s)/direction(s) are likely be similar from one RMP to another. The management action(s)/direction(s) should not only address the issues but also reflectReclamation’s overall goal of correctly managing its resources and facilities pursuant toexisting laws, regulations, and Executive orders, as well as its policies, directives, standards,and guidelines. See attachment V for general guidance on developing management actionsthat may be appropriate to include in an RMP.

Q. Implementation Procedures (Monitoring, Plan Revision or Amendment, andStandards and Guides).—Three key elements of this component are monitoring, planrevision or amendment, and standards and guides. This component should state that theimplementation of the RMP by Reclamation and its partners will be guided by existingand future laws, Executive orders, regulations, and policies and guidelines, and that the RMPis designed to supplement existing direction provided by these sources. It shouldalso indicate that there is a need for coordination and cooperation with partners andadministering entities for the successful implementation of the RMP. The monitoring andstandards and guides are most often incorporated into an implementation schedule. Otheritems that could also be included into the implementation schedule are the identifiedmanagement action (specifically what is to be accomplished), the target year or years forimplementing the management action(s)/direction(s), priority level, funding source, and theresponsible entity or entities, including appropriate contacts (i.e., referencing an individual,office, city, county, institution, or entity and their appropriate phone and/or fax numbers andphysical and/or email addresses may be helpful). The implementation schedule can be in anarrative or table format. Most managers and users of this component prefer a table format. (Refer to chapter III, “Planning Process Steps, 9. Implementation and Monitoring of aResource Management Plan” and “10. Amendments and Revisions to a ResourceManagement Plan” for additional information.)

Monitoring.—Monitoring efforts taken to track the success of implementing themanagement action(s)/direction(s) should be included in the implementation schedule(i.e., how to evaluate, observe, enforce, comply, achieve, document, or report concerning theaction, or determine that the management action was achieved). It should be mentioned thatthese monitoring efforts would occur periodically over the planning life of the RMP.


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Tables can be a valuable asset when performing monitoring. A table format that facilitatesmonitoring of the multiple resources by various disciplines can expedite these efforts. It issuggested that those monitoring the work assist in the layout and organization of the tables. (See attachment W for an example of monitoring review forms that were used exclusively toconduct field reviews to tract the implementation actions. Note: These monitoring formswere completed independently and were not part an RMP document.)

Following are a few examples of existing reviews and monitoring efforts already beingconducted on Reclamation lands that might be used to assist in monitoring the possiblemanagement action(s)/direction(s) identified in an RMP:

P Real Property Utilization ReviewsP Recreation Compliance ReviewsP Withdrawal ReviewsP Hazardous Waste Management ReviewsP Concession Compliance ReviewsP Land Use Authorization ReviewsP Review of Pest Management/Resource Protection PlansP Wetlands Inventory and MonitoringP Water Quality MonitoringP Facility Condition AssessmentsP Accessibility ReviewsP Review/Monitoring of Underground Storage TanksP Mitigation ReviewsP Associated Facilities ReviewsP Comprehensive, Periodic, and Annual Reviews of DamsP Comprehensive, Periodic, and Annual Reviews of Powerplants

Plan Revision or Amendment.—It should be stated in the RMP document that an RMPrevision or update would occur as necessary. The procedures to revise or amend the RMPshould be stated in this component.

Standards/Guides.—For each identified management action(s)/direction(s), it isrecommended that each of the action(s)/direction(s) be accompanied by standards or guidesthat state the laws, CFRs, agreements, best management practices, or other directives tofollow in meeting the management action(s)/direction(s). In many instances, the standards orguides will be the Reclamation manual for a specific program, as mentioned throughout thisdocument. Following are a few examples of standards and guides for different resources andparameters that might assist Reclamation offices in the completion of the standards andguides portion of the implementation schedule:


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Water Resources, Quality, and Use.—

P Water operations – Standards or guides are the Annual Operating Plan, StandingOperating Procedures, Emergency Action Plan, Designer’s Operating Criteria, and anyenvironmental stipulations for compliance resulting from a NEPA document.

P Water quality — Standards or guides are the State and Federal water quality standardsfor drinking, wildlife, and other identified uses.

P Watershed protection — The standard or guide is the current water quality standardsin place and the terms and conditions of contracts with other entities.

Recreation-Related.—

P Recreation development — The standard or guide is that provided by law (such as P.L.89-72 as amended by Title 28 of P.L. 102-575) and agreements with managing entities.

P Recreation management — The standard or guide is the NEPA document identifyingthe appropriate levels of use, recreation opportunity spectrum (ROS) System (Chapter60, Project Planning ROS Users Guide and Chapter 63, ROS Setting Indicator andAnalysis Technique Guidelines, FS), or as identified in contractual agreements withmanaging entities and State and Federal laws and visitor center policy, directives,standards, and guidelines.

P Recreation planning — The standard or guide should be the recreation use andfacilities identified in a NEPA document and/or the FS ROS System Chapter 25, ROSUsers Guide.

Fish, Wildlife, and Vegetation.—

P Habitat/fisheries management — The standard or guide is the State fishing regulationsand the construction of habitat enhancement structures where compatible with theoperation of the Project and safety of the public. State and Federal laws andregulations and agreements also guide fisheries management action(s)/direction(s).

P Vegetation management — The standard or guide for these actions includescoordinating/consulting with the FWS and U.S. Army Corps of Engineers, using IDteams to establish practices concerning grazing, prohibiting grazing, restricting use orclosing sites where vegetation concerns exist, implementing travel and public useplans, and implementing revegetation plans.


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P Wildlife management — The standard or guide for these actions includes aninterdisciplinary approach in preparation and implementation of the plan, coordinationof wildlife agencies such as the State game and fish departments and FWS, andadherence to Reclamation policy, directives, and standards. Appropriate ESAregulations, mitigation requirements, agreements, and other laws and regulations willalso guide the wildlife management action(s)/direction(s).

Lands and Land-Related.—

P Land management — The standard or guide includes the Federal Property andAdministrative Services Act of 1949 and 41 CFR 101-47, Section 204 of the FLPMAof 1976 (43-USC 1714), Section 10 of the Reclamation Project Act of 1939, 43 CFR429 – NEPA requirements and stipulations in Project authorization or other NEPAactions; ID team recommendations; other identified laws, rules, and regulations; andReclamation policies, directives, and standards pertaining to land management.

P Roads/trails — Standard or guides include section 10 of the Reclamation Project

Act of 1939, existing agreements/contracts/permits, off-highway vehicle (OHV) rulesand regulations, appropriate construction guidelines and design standards, and ID teamrecommendations.

P Travel/access — The standard or guide should be the Manual on Uniform TrafficControl Devices (<http://mutcd.fhwa.dot.gov/>), Scenic Byways regulations andcriteria, Reclamation policy for OHV use (43 CFR 420), State and Federal OHV laws,and ID team recommendations.

Other.—

P Concessions/special use permits — The standard should be covered by Reclamation’sconcession policy, directives, or standards and existing permit stipulations.

P Visual planning, management, development, enhancement, and rehabilitation — Thestandard or guide is the FS or BLM Visual Management System.

P Air quality — The standard or guide should be to meet the appropriate air qualitystandard for any activity in the management area pursuant to the State Department ofEnvironmental Quality standards and the Environmental Protection Agency.

http://mutcd.fhwa.dot.gov/


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P Cultural/paleontological — Contacts include Reclamation cultural resources staff, theSHPO, and Tribal Historic Preservation Officer (when designated). The standard orguide is 36 CFR 60 and 36 CFR 800 and Reclamation manual(s).

P Fire suppression — The standard or guide is the National Fire Plan Web site at<http://www.fireplan.gov>. Reclamation manuals, directives, handbooks, and otherdocuments related to this subject should be followed. Consultation with theappropriate entities should be conducted.

P Geology/minerals/soils — The standard or guide includes identification of landswithdrawn from minerals entry by a specific Public Land Order or Commissioner’smemorandum; coordination with BLM (Interagency Agreement between Reclamationand BLM 3-25-1983); coordination with the appropriate State division of oils, gas, andmining; efforts to minimize disturbance and return mined-out pits to naturallyappearing contours with top soil and to revegetate to minimize soil loss and visualimpact; and preparation of a soil and moisture conservation program.

P Integrated pest management — The standard or guide is to coordinate with the State,county, or other regulatory authority to control undesirable or invasive pests, establishvegetative controls for soil-disturbing or wildfire activities, apply pesticides only afterReclamation approval, and apply pesticides under direction of certified applicators andaccording to label instructions. (Also see Integrated Pest Management Policy,Directives, and Standards.)

The above-mentioned standards and guides are not intended to be a comprehensive listof all the standards and guides that would be used to track the status of certain imple-mentation actions. The examples are intended only to illustrate what kinds of standards and guides information might be included as part of the implementation component.Each office will have to identify those standards and guides that apply to the individualmanagement action(s)/direction(s) identified in each respective RMP.

12. List of Preparers

Listing those who had a part in preparing the document is an important recordkeeping effort. It is recommended that this be kept on an ongoing basis throughout the RMP process to avoidleaving anyone off the list. To help in the organization of this list, the following categories arerecommended:

P ID team – These are the Reclamation employees who participated in the develop-mentof the RMP. Each entity in the list should also include “Department of the Interior,”and “Bureau of Reclamation,” ID team member’s name, position, and area ofexpertise covered in the RMP.

http://www.fireplan.gov


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P Cooperating entity representatives – This should include the Federal, Tribal/ National,State, county (or other entities), department, representative name, position, and area ofexpertise covered in the RMP.

P Consultants under contract (reference contract number), if any – This should includethe name of the consulting firm(s), and consultant name(s), position(s), and area(s) ofexpertise covered in the RMP.

13. References/Bibliography

This is the documentation of sources cited in preparing the RMP. It is recommended thatthese be kept on an ongoing basis throughout the RMP process to keep everyone informed ofthe sources cited.

P References – These should be in alphabetical order and in standard reference format. According to the Government Printing Office Style Manual (2000), there are manystyles available to bibliographers because there are many classes of documents. AGovernment bulletin citation, according to one authority, wouldbe treated as follows:

Author’s name (if the article is signed); title of article (in quotation marks); thepublication (usually in italic), with correct references to volume, number, series,pages, date, and publisher (U.S. Govt. Print. Off.).

Therefore, the example would read:

U.S. Department of the Interior, “Highlights in history of forest and related naturalsource conservation,” Conservation Bulletin, No. 41 (serial number not italic),Washington, U.S. Department of the Interior (or U.S. Govt. Print. Off.), 1997. 1 p.(or p. 1).

Another Governmental periodical citation would read as follows:

Reese, Herbert Harshman, “How To Select a Sound Horse,” Farmers’ Bulletin,No. 779, pp. 1-26 (1987), U.S. Department of Agriculture.

Clarity may be maintained by capitalizing each word in book titles, but only the firstword in the title of articles.


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Other examples are:

Preston W. Slosson, The Great Crusade and After: 1914–1928 (New York:Macmillan, 1930).

Edward B. Rosa, “The economic importance of the scientific work of thegovernment,” J. Wash. Acad. Sci. 10, 342 (1920).

or:

Preston W. Slosson, The Great Crusade and After: 1914–1928 (New York:Macmillan, 1930).

Edward B. Rosa, “The Economic Importance of the Scientific Work of theGovernment,” J. Wash. Acad. Sci. 10, 342 (1920).

14. Glossary of Terms

Terms to be defined should be listed in alphabetical order, followed by their definitions.If appropriate, the source of unusual and/or technical terms should be cited or may befootnoted when used in the document.

15. Attachments/Appendices

These include unique and important information that pertains directly to the RMP and shouldbe attached to or reside with the document. These could include studies, reports, inventories,documents, tables, maps, figures, and photos determined important in understanding andimplementing the RMP. It is suggested that highly technical and lengthy reports not beincluded as attachments/appendices; instead, refer the reader to the location where these typesof reports can be obtained.

ChapterChapterSupplemental Resource ManagementSupplemental Resource Management

Plan InformationPlan InformationVV

Introduction

Certain kinds of information can supplement the text of and add value to an RMP. Amongother things, graphics, GIS analysis and mapping, and photos, when used properly, cansupport the decisions reached by the ID team and help the reader understand why certaindecisions were made.

Interdisciplinary Team Considerations

Key considerations can help the RMP ID team produce an RMP that the public canunderstand and that managers feel comfortable in implementing. The ID team shouldconsider:

P Stating any base assumptions/rationales in the RMP at the outset. This can bedone in a Preface or in the main body of the document.

P Providing key definitions, particularly of such important concepts as baseline,background, significant resources, local and regional management areas, Project, andareas of impact. Key technical terms should also be defined (e.g., acre-feet, cubic feetper second, jurisdictional wetlands, confined aquifer, and socio-demographics). (Alsosee chapter IV on the location of the Glossary.)

P Characterizing the area by interactions, attempting to derive cause/effect. Cause-and-effect relationships can be simple or complex. The magnitude of aneffect on a species may depend simply on the amount of habitat that is disturbed. Similarly, effects on archaeological sites may be quantified by enumerating the sitesthat are disturbed. Other responses may be more complex. Socioeconomicmodels can be applied in a similar way to determine the effects of changes inimmigration and emigration rates on the financial condition of a humancommunity.

P Using direct, nontechnical language, whenever possible, and placing an extensivediscussion of methodology in attachments or appendices. See Plain English Networkat <http://www.plainlanguage.gov./>.

http://www.plainlanguage.gov

V-2Resource Management Plan Guidebook

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P Using specific methods to describe and analyze the environmental resources andfactors. Each specific resource ID team member will likely use a variety of methods tonot only describe the existing resource(s) but also to analyze resource impacts fromproposed alternatives.

P Characterizing specific, representative areas (collect and synthesize informa-tion). Suggestions are as follows:

R For each Project that warrants more detailed effects, review, select, and define ageographic area that constitutes an area with definable boundaries to be studiedfor impact. Conduct a literature search to identify major components of theecosystem, its former and existing condition (if different), and its specific functionsand values that could be affected by development. Seek out researchers who haveconducted or are conducting investigations that could prove helpful inunderstanding specific resource functions, processes, and impacts.

R Document resource use of and reliance on the identified area. This can be based oncollecting, reviewing, and citing life history information for ecologically importantspecies; citing literature or habitat functions and values; and using life history andhabitat information to describe the use of the selected geographic area by species,including food web relationships, shelter from predators, and other functions.

R Identify environmental indicators for the Project area, such as water quality,sediment quality, or the presence of sensitive resources.

R Document possible anthropogenic sources of stress to the selected area(e.g., pollutant inputs, changes to freshwater flow and salinity, habitat alterationor destruction, and fishing pressure). Obtain historical information on habitatloss or degradation because of permitted and unregulated activities.

P Providing a comprehensive list of abbreviations and acronyms at the beginning ofthe RMP and NEPA document (as discussed in chapter IV of this guidebook).

P Attaching pertinent information as attachments to the RMP/NEPA document or asa separate appendix. This information is intended to support the decisions reached inthe RMP. Examples of pertinent information include adjacent land use zoningrequirements and designations; strategic plan and/or goals and objectives of amanaging partner; codified rules and regulations of managing partner (e.g., rules formanaging public recreation on Reclamation lands); newspaper articles, past andpresent; wildlife studies completed during RMP preparation; bird lists from the local

V-3Chapter V – Supplemental RMP Information

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Audubon Society; OMB-approved visitor use surveys; economic modeling outputs;and visitation calculations (as recommended in chapter IV of this guidebook under “15. Attachments/Appendices”).

Following are suggestions for supplementing the above-mentioned considerations.

Graphics

One well-planned graphic display—whether it is a pie or bar chart or a pictorial representa-tion—can often take the place of pages of narrative and make difficult or complex conceptseasy to understand. Graphic depictions should be regarded as an integral part of thedocument, not as an adornment, and can include maps, graphs, figures, charts, line drawings,diagrams, and others, including imaginatively conceived tables. The following, for example,might be directly or dramatically described by graphic means:

P Surface water sources – These can be graphically depicted by actual locations anddimensions (U.S. Geological Survey data) or shown in a graphic style, with the widthof the line showing the relative volume of the river or stream and the use of dashedlines for intermittent streams.

P Reservoir fluctuations – These can be shown graphically by using a dark shade orcolor for the dead pool area, a medium shade or color for the average annualfluctuation area, and a light shade or color for the normal water surface area. Floodelevation can be depicted as a light or colored line at the maximum flood elevation line,with light diagonal lines between the flood elevation line and the light shade or color ofthe normal water surface area.

P Boat ramp or trailhead accessibility – These facilities can be marked on a map usingstandard recreation symbols (square with a symbol). Multiple symbols should bealigned horizontally or vertically at each recreation site on the map.

P Dewatered stream sections – These can be shown with a dash and dotted line to depictboth location and duration. More dots can be added to depict longer and longerperiods of dewatering.

P Habitat changes – A simple way of identifying changes is to use medium colors orshades to identify the different habitat types and then to draw a line around the areathat may or will be changed, using diagonal lines to fill in that area.


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P Riparian corridors – These can be identified using a medium shade or color toidentify corridors (the lighter shade or color should allow other features to show).

P Various types of recreational use – The types of use are often depicted in bar graphsor pie charts showing numbers and categories of use or percentages for each categoryof use.

P Wetland areas – These areas are often depicted by using green symbols (small reeds,grass, or others) repeated over and over to fill in the wetland area.

P Wildlife distribution and types – Distribution and types can be shown by pie charts orbar graphs identifying each species and its population or percentage. These charts orgraphs can be placed on a map to show distribution and types over the managementarea.

P Fishing/hunting as a piece of the recreation “pie” – This can be shown with a piechart or bar graph.

P Population trends – Trends are most often displayed on bar graphs that show numberson the vertical scale and time on the horizontal scale.

P Land use patterns or trends – These can be shown on bar graphs. Each classificationof land use can be shown by acres of land on the vertical scale and at differentincrements of time (generally 1 to 10 years, depending on the rate of change) on thehorizontal scale.

P Aquifer configuration/processes – These features can be presented by using variousshades to represent the configuration/process and overlaying it on a map (generally in aCAD or GIS format).

Helpful graphics and approaches include:

P Process maps and flow charts – Charting physical, social, biological, and otherpertinent processes will help determine when events happen so temporal relationshipsare revealed. It is effective to use rectangles or circles containing key words or phrasesand lines and arrows to connect the circles or rectangles to depict the processes.

P Influence diagrams – These can help brainstorm areas to examine. One overalldiagram and one for each resource can be developed with, for example, bubblediagrams pointing or overlapping with other bubble diagrams to show relationships oroverlapping areas (words or phrases in the bubbles define the relationships orinfluences).


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P Issue maps – Overlaying issues (e.g., endangered species concerns or water demands)over a map of the area can provide an overall view of relationships between issues. The most accurate way to show these relationships is by using GIS and accuratelydisplaying each resource layer and its impact in tandem with other resources.

Cautionary notes: Graphics should be referenced in the narrative and briefly described,as appropriate. If extensive explanation of the graphics is required, the graphics wereprobably not well planned and should be revised or omitted. The location of culturalresources is proprietary information and is prohibited from being shared with the generalpublic.

Useful graphics that could be used in either an RMP or NEPA document or an integratedRMP/NEPA document follow (Example 1 – Conceptual Plan, Example 2 – Surface WaterSupply Diagram, Example 3 – Alternative Flow Releases, Example 4 – Vegetation andWildlife Habitat Zones, and Example 5 – Daily Flow Releases).

GIS Resource Mapping

Existing resources in the management area should be mapped and displayed in the RMP. Various naturally occurring phenomena and conditions may limit or influence human activity within the management area; one way to represent constraints on area resources isthrough GIS mapping that can help identify those areas with limitations for development. Through its layering capability, GIS can also provide a tool to help determine if suggestedmanagement actions outlined in the RMP might be compatible with existing land uses.

Through the use of GIS, the technical specialist can view differing resources in anoverlapping perspective among the Project resources. These relationships are on a baseinformation overlay that can consist of the topography, roads and highways, land and/orProject boundaries, or even a combination of all of these, to provide the most concreteunderstanding and perspective of the interactive nature of the Project resources. (Seeattachment S for an examples of GIS maps.)

Two apparent benefits from the use of an interactive GIS system are the descriptive nature ofits data presentation for use as a decision support system and its ability to view both currentand historical data in support of public involvement issues. In the use of the baseline data,resource inventory maps can be drawn to illustrate the integration of managing relationshipsamong the Project resources. Another use is to visually identify common elements of theproposed RMP and any contentious areas among the managing entities and/or the public,such as multiple uses, conflicting uses, exclusive uses, and encumbrances.


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Example 1 – Conceptual Plan


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Example 2 – Surface Water Supply Diagram


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Example 3 – Alternative Flow Releases


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Example 4 – Vegetation and Wildlife Habitat Zones


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Example 5 – Daily Flow Releases


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The GIS system can also be used as a descriptive tool to illustrate the proposed plan goals,to describe what each of the management alternatives entails, and to depict any proposedactivities and improvements.

Manipulation and Analysis with GIS

A geographic information system is a system of hardware and software for inputting, storing,manipulating, analyzing, updating, and displaying digital spatial data. Once digitallayers (or coverages) are input or encoded, they are ready for analyses and manipulation.Digital layers can be stacked and used to generate new layers that answer questionsabout the suitability of development based on the land capabilities of a geographic area orspatial location. For example, spatial analyses could show the regions in a study areathat are suitable locations for a new campground based on soil, slope, geology, vegetation,cultural resources, sensitive habitat, proximity to roads and water, and land ownership.

Since points, lines, and polygons have attribute data associated with them, tables can begenerated that show quantitative data such as acreage or lineal extent. This attributeinformation can be transformed into models that show geographical areas that would beinundated by water (measuring depth and duration) after a dam failure. These models wouldshow how far the water would extend and its depth in a given time after dam collapse.

CAD mapping can also be used to represent existing resources, but CAD may not haveextensive layering capabilities; it is recommended that CAD systems used to prepare mapsbe compatible with GIS to allow easy conversion into a GIS format. The area office willhave to determine if GIS mapping meets its needs and if it can be achieved within currentfunding levels.

Photography

Photos of different types of facilities, uses, and resource conditions can effectivelysupplement the narrative description of such facilities, public and private uses, and resourceconditions in the RMP/NEPA document(s). Facilities that could be photographed includerestrooms, boat ramps, dams, day-use areas, parking lots, fishing platforms, and huntingblinds. Uses that could be photographed include fishing, hiking, boating, swimming, illegalcamping, private exclusive use, utilities (powerlines, pipelines, and others), and OHV use. Resource conditions that could be photographed include shoreline erosion, borrow pits,wetlands, damage caused by vehicles and pedestrian traffic, critical wildlife habitat,vegetation, and topography (see accompanying photos and layouts taken for an RMPon the following pages).


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An extensive network of roads and an expansive parking areaare found near the dam on the west side of Agate Lake. Disturbed

areas are colonized by star thistle and cheat grass.

Heavily impacted area on the west side of Agate Lake.


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Grasslands in the northwest section of the Lake AreaBoundary contain vernal pools.

Illegal OHV use such as this occurs throughout theLake Area Boundary.


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A small riparian forest has developed around Hopkins Canal as itempties into Agate Lake.

Dry Creek upstream of Agate Lake supports a riparian communitydominated by willows, cottonwoods, and alders.


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Island Beach picnic ground (Deer Creek Reservoir).


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Main State Park area.

Photo Points Around the Management Area

Another use of photography is to establish key photo points around the management area. The specific location for each photo point should be identified on a map or in a writtendescription with pertinent camera information (i.e., lens settings, film type and speed, anddigital camera settings). These photo points act as a visual record over time and can be usedfor monitoring. By taking the same photos from the same point every 1 to 5 years, visualchanges can be observed and documented in the monitoring reports.

Glossary

AA

Absorptive capability – A detailed classification system used to denote the relative ability of alandscape to accept human alterations without the loss of character of scenic quality.

Acquired lands – Lands that the Bureau of Reclamation has acquired by purchase, donation, exchange,or condemnation.

Act (1890) reserved rights-of-way – Rights-of-way, for ditches or canals constructed by the authority ofthe United States, were reserved in all patents issued on public lands west of the 100th Meridianentered after August 30, 1890. (Patents are the initial conveyance of public lands from the UnitedStates.) These reserved rights-of-way can be exercised either by Confirmation Deed, Right-of-WayNotice, or through construction itself.

Annual Work Plan – Annual budget document that describes proposed work to be preformed at aspecific Bureau of Reclamation Project area and that details the amountof funds required.

Area-wide management direction – Area management actions that apply equally to the entiremanagement area covered by a Resource Management Plan.

Authorized Reclamation Project – An approved Bureau of Reclamation Project that has been authorizedby Congress for specific purposes such as irrigation, flood control, municipal and industrial use,recreation, and fish and wildlife.

CC

Categorical exclusion – An environmental document covering routine activities that do not individuallyor cumulatively have a significant effect on the human environment.

Code of Federal Regulations (CFR) – The annual cumulation of Executive agency regulations publishedin the daily Federal Register, combined with regulations issued previously, thatare still in effect. They are divided into 50 titles, each representing a broad subject area. Individualvolumes of the CFR are revised at least once each calendar year and issued on a staggered quarterlybasis. The CFR contains the general body of regulatory laws governing practice and procedurebefore Federal administrative agencies.

Contracting Officer’s Representative – The technical individual identified to oversee the day-to-day workthat has been contracted and to report performance to the Contracting Officer.

Council on Environmental Quality – Establishes regulations for implementing the procedural provisionsof the National Environmental Policy Act.

G-2Resource Management Plan GuidebookFebruary 2003

DD

Desired condition (RMP) – The future condition of the management area that results from achievingthe goals and objectives identified in a Resource Management Plan.

EE

Environmental analysis – Systematic process for consideration of environmental factors in landmanagement actions.

Environmental assessment – A National Environmental Policy Act compliance document used todetermine if an action would have a significant effect on the human environment. If not,a finding of no significant impact is written. If so, an environmental impact statement is written.

Environmental impact statement (EIS) – A National Environmental Policy Act compliance documentused to evaluate a range of alternatives when solving a problem would have asignificant effect on the human environment. The EIS is more than a document, it is a formalanalysis process that mandates public comment periods. An EIS covers purpose and need,alternatives, existing conditions, environmental consequences, and consultation and coordination.

Environmental report – Any report addressing environmental issues.

Executive order – A written directive of the President of the United States of America.

FF

Federal lands – Lands, or interests in lands (such as easements and rights-of-way), owned by theUnited States.

Federal Register – A publication of the Federal Government that publishes actions and notices relatedto Government activities.

G-3Glossary

February 2003

Finding of no significant impact – A written document that is prepared and attached to an environmentalreport to indicate that the action identified has been determined to be nonsignificant.

GG

Geographic information system – A digital geographic database used to analyze and store data.

Goal (RMP) – For the purposes of this Resource Management Plan Guidebook, a goal is a brief statementdescribing the end result of implementing a management action or seriesof actions. A goal also can be considered as a desired condition that the Bureau of Reclamationwishes to achieve within the management area.

Government Performance and Results Act – Requires government agencies to account for work preformedannually.

Government Printing Office – The official authorized printing office of the United States Government.

II

Interdisciplinary team – A team composed of specialists in different areas of expertise who can addressa broad range of issues related to various actions.

Issue category – A series of similar issues that have been titled to reflect the nature of the issue(s) andgrouped to facilitate the development of Resource Management Plan goals and objectives.

JJ

Jurisdiction – A term used to describe the level of management responsibility an entity has for aspecific area using its rules and regulations.

Jurisdictional wetlands – The Clean Water Act defines wetlands as those areas that are inundated orsaturated by surface or groundwater (hydrology) at a frequency and duration sufficient to support,and that under normal circumstances do support, a prevalence of vegetation (hydrophytes) typicallyadapted for life in saturated soil conditions (hydric soils). Wetlands generally include swamps,marshes, bogs, and similar areas. Jurisdictional wetlands are those that are regulated by the UnitedStates Corps of Engineers undersection 404 of the Clean Water Act.


MM

Management – A term used to describe a level of management responsibility that has been delegatedto another entity through a management agreement initiated by the entity that has jurisdiction overthe lands being transferred.

Management area – Described as a geographic or study area that can be effectively managed as arelatively independent area. Project and management areas are not necessarily synonymous becausethere can be several management areas within a project. A manage-ment area may be a reservoirarea, wildlife area, or canal, or an area that has similar problems or issues.

Monitoring (RMP) – An established strategy that is developed to track the progress of implementingthe management actions identified in a Resource Management Plan.

NN

Notice of Intent – A written document generally published in the Federal Register that discloses an actionto be taken by a Federal agency.

OO

Objective (RMP) – A statement or series of statements that briefly describe an action that will achievea specific goal identified in a Resource Management Plan (RMP). Specific management actions aredeveloped from RMP objectives.

Off-highway vehicle – Any vehicle that travels off designated roads or trails.

PP

Plan component – A unique and complete part that makes up a plan.

Project facilities – Canals, laterals, drains, pumps, buildings, etc., owned by the United States.Note: Title to project facilities and lands remains in the United States until specific legisla-tion isenacted to authorize disposal (regardless of who is responsible for care, operation, and maintenanceof the facilities).

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Project purposes – Lands are withdrawn and acquired for authorized purposes of the specific project,including irrigation, flood control, recreation, and fish and wildlife.

Public Involvement Plan – A document that outlines the processes for involving the public in a givenaction.

Public Land Order – An action on Federal lands to withdraw it from public use for a specifiedpurpose.

Public lands – Public lands include only those Federal lands administered by the Bureau of LandManagement (with the exception of lands located on the Outer Continental Shelf and lands held forthe benefit of American Indians, Aleuts, and Eskimos).

Public Law – A law passed by the Congress of the United States of America.

RR

Reclamation Project Lands – Federal lands or interests in lands under the jurisdiction of the Bureau ofReclamation (Reclamation), including withdrawn lands, acquired lands, and1890 Act reserved rights-of-way that have been exercised. Note: Reclamation Project Lands are notthe same as public lands. Reclamation Project Lands were initially withdrawn, acquired, or exercisedfor specific project purposes and are governed by different Federal land management laws andregulations than public lands. Public uses of Reclamation Project Lands can be suspended asnecessary to protect project facilities, and Reclamation Project Lands are not open to off-roadvehicles unless specifically opened for that use.

Reclamation zone or Primary Jurisdiction Area – Area located immediately around a dam that is usedprimarily for Bureau of Reclamation Project purposes.

Recreation opportunity spectrum – A system for evaluating lands and resources for appropriate recreationuse.

Relinquishment – Notification to the Bureau of Land Management by a Federal agency (like theBureau of Reclamation) that specific withdrawn lands are no longer needed for project purposes.

Research natural area – An area that has unique ecosystems and great diversity of plant or animalcommunities.


Reserved works – Those project facilities for which the care, operation, and maintenance has beenretained by the United States.

Resource Management Plan – A written plan that addresses the existing resources of an area andprovides future objectives, goals, and management direction.

Restoration – An action by the Bureau of Land Management that restores withdrawn lands to thestatus of unreserved public lands subject to settlement, sale, location, or entry under some or all ofthe general land laws.

Revocation – The actual cancellation of a withdrawal of land by the Bureau of Land Management. The land is then restored to public land status.

SS

Section 7 compliance – Refers to consultation with the U.S. Fish and Wildlife Service on endangeredspecies issues related to an action.

Site-specific management action – Management actions that apply specifically to a portion of themanagement area covered by a Resource Management Plan. Site-specific areas lend themselves tounique resource management.

Standards and guides – Written standards and guidelines prepared by Federal and State agenciesoutlining how work is to be accomplished and actions that need to be taken.

State Historical Preservation Officers – Individuals that need to be consulted on National HistoricPreservation Act and Native American Graves Protection and Repatriation Act issues.

Statement of work – A written document that clearly outlines work to be accomplished, estimatescosts, and establishes dates for completion.

Stewardship – Responsibility of land management entities to manage public lands under theirrespective jurisdictions for the public good using sound land management principles, practices,procedures, and guidelines and to meet the mission statement goals and objectives of each entity inthe context of existing laws, regulations, policies, and Executive orders.

Strategic plan – A written plan outlining a government agency’s framework for management.

Study area – A large area around a management area that has an influence on the resources withinthat management area.

G-7Glossary

February 2003

TT

Technical Service Center – An office of the Bureau of Reclamation in Denver, Colorado, that providesprofessional technical services.

Tiering – The coverage of general matters in a broad National Environmental Policy Act documentwith subsequent narrowly focused documents; it helps to eliminate repetitive discussions and allowsthe site-specific documents to focus on specific issues.

Traditional cultural properties – A site or resource that is eligible for inclusion in the National Register ofHistoric Places because of its association with cultural practices or beliefs of a living community.

Transferred works – Those project facilities for which the care, operation, and maintenance has beentransferred from the United States to irrigation districts.

Tribal Historic Preservation Officer – Tribal official who must be consulted on National HistoricPreservation Act and Native American Graves Protection and Repatriation Act issues.

UU

United States Code – The written directives for public law.

WW

Water Recreation Opportunity Spectrum – A system for evaluating water resources for appropriaterecreation use.

Wilderness resource – Resources identified in officially designated wilderness areas onU.S. Forest Service or Bureau of Land Management administered land.

Withdrawn lands – Withholding of an area of public land from settlement, sale, location,or entry under some or all of the general land laws to (1) limit activity under those laws to maintainother public values in the area, (2) reserve the area for a particular public purpose or program, or (3)transfer jurisdiction of the area from one Federal agency to another.

Work Plan – Plans that detail the scope, direction, and purpose of a proposed Resource ManagementPlan.


ZZ

Zoning – Identification of areas of specified uses or restrictions.

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